The trick is perhaps to serve the interests of a city's residents without violating the *rights* of its land owners & tax payers.
Kind of like how Twitter as a company works to serve the interests of all of its users, while still remaining fair to its advertisers, shareholders.
It might be that it's in the land owners' interest to give users a vote on certain topics, just as businesses do for feature requests.
We can't assume that all users are good or desirable. Users can be adversarial. Some are negative value and toxic to the business & other users.