I have two cities and four outposts. Started as Egyptians, and now the Huns - have managed to harass the Purple AI long enough they are still in the tribal stage and I don't think there are any open territories for them to claim.

None of my 4 outposts will let me connect them to a city, saying that the city must have an administrator for that to happen (they won't even merge to my capital).

They also don't give me the option to convert them from outposts into cities.

Should add that I've not build any of the EQ (though some are still in the queue) but have build their EU.

As huns, all your outposts are automatically converted to the EQ...which can’t be attached to/ become a city.

That explains it then -- both why I can't connect and why I can build the EU w/o having built the EQ.  Wasn't clear that was what happened.to me though.