Payroll taxes and even city sales taxes are not unknown. Bureaucracy in big cities can make it more difficult to get the licenses and permits that developers need. Development sites can be difficult to assemble because of legal complications. SUCH AN assessment would focus on costs, zoning ordinances, and licensing laws and fees. There may be some limited reasons for assistance to older cities, in order to help jumpstart new development.
State aid seems appropriate here, once cities have helped put together buildable sites.
At the same time, Americans have grown increasingly dissatisfied with the results of public education. Before we follow the siren song of regional government again, let's do the hard work of finding out why older cities have declined and take practical steps to help them find new life.