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I'm thinking it's probably a change in behavior so that not all eligable students choose to go to university anymore, even when not using the schools out policy.
Or maybe there's a max coverage radius, I doubt it though.
Get the CSL Show More Limits mod and check your limits. If your Citizen Units are capped by phantom units, then it can be fixed with a mod like Improved Public Transport. IPT used to have this problem of creating phantom units, and IPT now has code in the mod to remove the phantom Citizen Units. Just load a save game with IPT enabled and you will see that your Citizen Units are back to normal. You can then save the fixed city, and disable IPT if you choose. Once the phantom units are gone, you dont need IPT anymore unless you just want to use it.
There are other bugs in a city that capped Citizen Units will cause. Most common is unused housing. You will build entire neighborhoods and all the residntial buildings will stay empty (0 households occupied). This can be easily seen by viewing the Happiness Infoview Map. You will see multiple residential buildings showing as bright red indicating they are empty. Other bugs include broken public transport, you will notice that no one is taking your once thriving bus or metro system. There might be a bunch of people standing around at the stops, but you will notice that they never get onto the transport.
Hopefully this helps you solve your problem. Cheers!
I don't see any empty housing or buses / metro in my city at the moment, so I don't think capped Citizen Units is what's causing the problem.
So, I assume your universities are all fully occupied, or at least there is no discrepancy between the number of citizens eligible for universities and the actual number of students in universities?
I've always blamed it on a lack of available zoning that reduces demand for a college education. I always have lots of manufacturing and few office zones. My theory is if most jobs require little education, there's no need to go to higher schools. I haven't tested it out yet though. Try adding lots of office zone that demands higher education.
this is what i was going to say but you've already discovered it. this is what is happening in your city. just like real life, certain levels of education are compulsory and others are optional. the number of eligible for univeristy is not the amount that will actually choose to go to university.
i usually build the opposite. tons and tons of offices in central business district fed by suburbs, and massive university attendances, almost everyone who is eligible will attend.