Not Reaching Level 2 Properly (White Giant)

I know that for empires, it is an average index. But my empire in WG, the only thing that is holding me back is my employment index. The requirement is 70. On my empire index averages, it is currently 72.5

Why am I not levelling up properly?

Currently your employment index is setting at 67% for you empire. Keep plugging away, your almost there.

Yeah, that's what my index on my country page says, but when I check the my empire page, it's at ~72%. One of them is clearly wrong.