Ok i got it - dunno why it works, but it is working for me, seems a little counterintuitive - i can only
guess it is skipping some error checking in another function:
you can cast this on a city with no essence - can't end the spell, but you can put a duration on it:
<Duration> 10</Duration> or however long you want it
<SpellDef InternalName="Governer's Orders 1">
<DisplayName>Governer's Order 1</DisplayName>
<Description>Governor target's a city to give 10% unrest </Description>
<Image>S_Inspiration_Painting.png</Image>
<IconFG>S_BlessCity_icon.png </IconFG>
<IconBG>S_Inspiration_Icon_BG.png</IconBG>
<IconColor>217,206225</IconColor>
<AutoUnlock>1 </AutoUnlock>
<CanStack>0</CanStack>
<SpellBookSortCategory>City</SpellBookSortCategory>
<SpellBookSortSubCategory>Other</SpellBookSortSubCategory>
<SpellType>Strategic</SpellType>
<SpellClass>ImpResourceBooster</SpellClass>
<SpellSubClass>Other</SpellSubClass>
<SpellTargetType>FriendlyCity</SpellTargetType>
<GameModifier>
<ModType>Resource</ModType>
<Attribute>Unrest</Attribute>
<Value>-10</Value>
</GameModifier>
<HitSoundFX>Spell_BlessCity_01</HitSoundFX>
<SpellCastEffectName>Brilliance</SpellCastEffectName>
<SpellcastEffectScale>.2</SpellcastEffectScale>
<SpellDefEffect>
<EffectName>S_Inspiration_Particle</EffectName>
<LocalPosition>0,0,0</LocalPosition>
<EffectScale>.5 </EffectScale>
<EffectDelay>.5 </EffectDelay>
<SnapToTerrain>1</SnapToTerrain>
</SpellDefEffect>
</SpellDef>