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it's hard to expand that fast in early ages as you don't have the tech to deal with the unrest that generates the unhappiness
Also, city guards (and their upgrades) start at -8 unrest, double that of a regular unit, and each upgrade improves that by -4. Currently in the Age of Generals, and one National Guard provides -16 unrest.
It is also my understanding that vassals do get unrest, so place some city guards on them, because they (currently) won't build any units.
Vassalize them. Don't integrate until you have the resources to make dedicated culture cities. Just because the button exists doesn't mean you have to push it.