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I think the first one you can get is on the lower part of the first technological era, and the second and third one are in the third technological era.
Tier 3 research gives lots of buildings that give high approval (+60 from the market I think!) and reduces expansion dissaproval, until you get there I'd do what necro suggests and look for anomalies on the map (+10 average) but the best thing until then is to not spam boroughs, if there are no anomolies on an area you want choose a city placement that gives you the best benefits so that you don't have to place as many boroughs, next thing is to think about borough upgrades, placing 4 (not 6 as it says :P) around a borough or centre grants +10 approval which will negate the -10 it usually gives, not much but it allows you to place 1 extra borough for the same approval modifier.
I think you can level boroughs up more to actually give positive approval at this stage, but I am not sure how, I did it with one city which ended up with >100 approval even with more than 10 boroughs (also had tier 3 upgrades and 2 anomolies however), but I am not sure if A: you need 4 level 2 boroughs around it or B: you need just one level 2 borough and 6 others etc.