Possible priority corrections?

[NeoFax]

When I set the priority for a city, it seems as if the setting does not even work. Example: I set happiness as the priority for the city, but instead of building say a shrine, it builds a archer. This to me does not seem correct. Also, shouldn't the AI take into account tile improvements into this equation? i.e. a shopping mall?

Where would I find the settings to see about correcting this?

[Maquiladora]

The archer can increase happiness by martial law, and its cheaper than a shrine, so it couldve been the better choice for happiness at that time.

If it still does this in a government with no martial law effects (eg. republic) then theres a problem.