The happiness system is not going to be scrapped. It’s not only not on the table, it’s utterly ridiculous. So either pivot and join in working with the system as is, or stop. It’s that simple.
I'll agree with this. Regardless of my concerns about the system, its best to keep working with the fundamental concept, instead of just tossing it out wholesale at this point.
That said....a bit of a more radical thought: Right now we have Global penalties filtering through local cities (the needs met in each city). What if unhappiness was purely global?
Basically I have a global need for food, for science, for gold, etc. This could still be a factor of average pop, tech level, whatever. And just like now, if I'm not meeting those needs, it generates unhappiness. But to meet those needs, I can do it however I want.
If I need 100 food I can:
1) Provide 80 from the capital / 5 from 4 other cities
2) 100 food from the capital
3) etc.
So the player gains a lot of flexibility in how to address the system. Tall players bust out their capital, wide players have to get decent infrastructure in a lot of places. Whatever you do doesn't matter. You still have to develop, but you have a lot more freedom in how you do it. It also means none of my actions are "wasted". If I have spent time in City X to develop it, it always contributes...even a little... to my global pools. Whereas right now the system is very binary. Either I reduced unhappiness by X....or I didn't change a thing.
Then, instead of needs reducing buildings, maybe the buildings could multiply the yields effect from that city that is provided to the Global pool. So the university says "+10% science from this city added to the Global Literacy Pool" (the text is terrible it needs work). But that idea is that those buildings could still work locally, and in a way that is very easy for a player to understand.
"Ok I have 50 food in my capital. I need 20 more food to meet distress. So if I build building X I get 50% more food for distress from the capital....oh that will work lets do it"
Now ultimately you may need less needs buildings, and I actually think that is perfect fine. The mod has somewhat transcended that to me. When the happiness system was originally designed, a lot of buildings were still uninteresting and the system was a way to encourage players to build those buildings. I don't think that is nearly as needed any more, I want to build those buildings. So I don't think the happiness system is needed for that anymore, or at least not to the same degree. You could keep some buildings in that bucket, but the number could be reduced if it helped balance the system.