Cities can vary depending on playing style. A few observances:
- Too many decorations and cultural buildings. Level that Oracle up a few levels to help with happiness. Are you doing the GE? If so, do you have any Face of the Ancient or Gate of the Sun God decorations in your inventory? At 2x2, I find them helpful in IA to combat happiness. Way more effective than a large cultural building.
-The arrangement could be more effective. The less roads you have, the more room you have for buildings.
- Do you have supply issues? A butcher, a fruit farm, and a goat farm, right? (I don't have everything memorized.) Get rid of the farms. Add more butchers.
-Convert your Roof Tile Houses to Cottages. You will free up space by doing so.