This is where my philosophy differs from some others. Personally, I think specialists with just food cost and slot limits are enough, I didn't think they needed unhappiness in the first place. But if we are going that route, we are doing it because we are saying that specialists are strong enough that they need that for balancing. We shouldn't then go "well guilds are an exception"....why? Either those specialists are strong enough to warrant the penalty, or they aren't. If they are....then you deal with the penalty the same way you deal with unhappiness in general. Otherwise, lets just toss out the unhappiness for specialists in general, and further simplify the system that is probably the most complex in the mod currently.
That conflates having some of the specialists with ALL of the specialists.
2 on non-guild buildings and 1 on Artistry combined with 3 on the guilds covers the bare minimum for a viable culture victory. If you aren’t focusing on a CV then use the ‘common core’ of unhappiness-free specialists to pursue your preferred specialists, but the urbanization penalty is there so that you can’t have a specialist-centric strategy with no downsides.
To put another way, no unhappiness from specialists will give a non-CV, specialist-focused civ like Korea (and Sumer) too much leeway. Having no urbanization mitigation will give a specialist/CV-focused civ like Arabia too much of a nerf
In the best circumstance, the happiness system is mainly adressing expansion, warmongering and empire management and only gives you a bad response, if you expand too agressiv and manage (empire or war) too bad.
In this case, working specialists should have downsides out of the happiness system. Besides urbanization unhappiness, we have only the consumption of a lot of food as downside. Cause food is more and more accessable in the later stage of the game, this downside gets more and more neglegible and Gazebo is using happiness as a regulation system.
As others have already said or atleast claimed, late game is all around specialist usage and GP spam. If this is true, and specialists are able to contribute much more to the empire than all the normal citizen and even future citizen working the tiles of cities, then we have to ask, why is this the case, and there are 3 possible answers:
- A) The direct yields from specialists are much greater than the normal citizen contribution
- B) Great People born by the usage of specialists are able to influence the game noticable
- C) A lot of yields contribution by working AND the benefits from born Great people
To A) Even with very strong buffs for my specialists (+1

+2

+2

) in my current game, their direct yield infusion isnt that big. Engineers and Merchants can be beaten by citizens working mines and lumbermills or villages on roads with trade routes.
To B) I have a tremendous amount of instant yields gain, especially science, but also from culture. This comes probably from using scientists and writers and all the instant yield popups
I think, C is the right answer. Scientists and Writers generate already good and worthy yields, but tremendous amount of yields by using the instant ability of their GP. Winning the science race didnt come mainly by the yields from specialits, but from their GP.
I think as long as those GP still stay that strong, theres no real reason to deliver the food for the scientists or writer instead into the growth.
If we want to make growth more relevant, we need to make citizen more relevant and/or specialits and their GP less relevant.