buildings come & go. Infra (pipes, roads/road layout, subways) doesn't really "go away." Plus, infra makes the buildings.
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So what? The end goal is in the buildings, so infra has to be built with that end goal in mind. Your argument could equally well be applied to a building's foundations, and yet clearly unless you have a final building in mind, you have no way to lay appropriate foundations.
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it's a bit of chicken/egg problem. Build a few bldgs, decide you need sewer/water, build it, more buildings come. &c
End of conversation
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