I think part of this is because people often don't appeal to local government unless they've got an axe to grind. Nobody goes to the city council meeting to comment on how everything is great and things are fine the way they are. So when someone shows up to complain about ice cream truck music, the people who are pleased, or at least indifferent about it, don't show up to oppose the complainer, and the signal the council members get is that it's a problem and a city ordinance or whatever is required. There are typically opportunities in the local law-making process to allow someone to oppose the complainer, and it does happen, but few will match the complainer's level of effort. Then if a law makes it on the books, local LEOs become the complainer-class's customer service representatives, and you get what you're describing.
Ultimately, local civic engagement is often what matters most to your day-to-day life, which is good. I think effective and durable self-governance must start at the local level. But we get blasted by media related to national politics at every time and season, to the point that the thought of trying to stay dialed into local government is a non-starter for many. If all the attention we can bear to allocate to politics is monopolized by the national wedge issues of the day, who will muster the volition to save the ice cream truck music?