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  • Devin Becker thinks this is interesting:

The mayor of a city doesn’t really lay out its streets or make zoning decisions personally. So instead of thinking about the role in a literal sense, think of it as a collection of challenges, actions, and opportunities.

From

Cover of Fundamentals of Construction and Simulation Game Design

Note

Quests are a natural fit, but could be done in a sandbox Skryim way.