It's not without it. It's just not mentioned. The category is "religion". The religious aspect is all that is mentioned.But as I said, an atheist state without a leader cult is not historically realistic.
There's a very good reason why this analogy is not apt. Those two examples seem ridiculous because they are too specific. Your complaint about atheist state appears to be closer to it not being specific enough.One could as well have civics like "Rule of the Shoeshiners" or "Apple-peel Currency".
Two reasons: Balance and simplicity.How about an atheist state takes away happy from churches, yet adds happy to theater and other secular entertainment facilities?
Regarding the latter, most civic mods on the market add a hundred and one effects to every civic to make them more realistic. That's not an approach I'd like to take here. I feel it defeats the purpose of the civic system. I believe I mentioned earlier that the culture penalty was a relatively recent addition. I didn't want to include too many effects, three tops (depending on how you define a separate effect), and most of those would be drawbacks in the case of Atheist State.
That of course brings me to balance. I've got Atheist State in a position where it works, and considering the amount of effort that it took to get there and I am therefore loathe to change it. That said, basing it on buildings seems a fair idea, and I will test it for balance.