Then perhaps "urban policy" is an unnatural category, combining conflicting interests.
Why not just have two municipal governments—one elected by those whose business interests lie within the city, which would be in charge of the city's business policy (e.g. corporate taxe and grants, arterial infrastructure, commercial zoning); and a separate one, elected by the city's urban residents, which would be in charge of the city's civic policy (e.g. estate taxes and VATs, non-arterial infrastructure, residential zoning, etc.)? These are essentially orthogonal problems that don't really "run into" each-other much; you could have two separate sets of people working on solving them without those groups needing to communicate all that much.
Municipal government is already somewhat factored this way, insofar as e.g. school boards and park boards are separately elected rather than being appointments of the municipal executive; and some of those elections are defined by different political boundaries (e.g. catchment areas for schools) than the election of the municipal executive is. Why not just go one step further?
