Earlier quoted context omitted.
With cities I don't think it's 'ROI' so much utility and pressing budgetary needs. There is always a war over budget. There are 10 projects that 'they'd like to do but can't'. Every city wants more buses, has potholes, has sewage problems, needs infrastructure. 'Pretty manholes' might not make it to the top unless someone really, really cares. Or it's part of a secondary budget.
In NSW, Australia, there's many millions for stadium repair. https://www.theguardian.com/australia-news/2018/mar/29/glady... For child abuse for poor people? Budget cuts. https://www.abc.net.au/news/2013-05-19/nsw-legal-aid-refuses...
Well see that's the thing. Any city councillor who says 'pretty manholes' will be superseded by someone who says 'children and the poor'.