Take the country health index.
if it is high enough for the next level, but the average in the empire is too low,
the text on the "Now What" page is about the average.
If the health index in the country is not high enough, the text is not mentioning the average but the country.
Same with cash. It seems that the cash level is too low in that country, this is why the Now What page is showing a message about the country and not about the average.
After the next update, the text on the Now What page will always mention the average.
I hope it is clear.