I can see by your handle that you have a typical European mindset that the people serve the government, instead of the other way around.
Government, city or otherwise is nothing more than a servant, and they should have no "will." You put some sort of special significance on the fact that these bureaucrats somehow get to run the asylum, and it's really just mainly a matter of nobody caring enough on a day to day basis to throw them out, unless they really screw up. "The people" vote every day, with their wallets. Without commerce, city, county, state and federal governments are nothing. But commerce can and does exist without government.
It all runs better when they work in partnership, but make no mistake. Government needs commerce a Hell of a lot more than vice versa.
When government becomes too self important, they usually lose, because there are always other governments who will provide a more commerce friendly environment.