This is a very compelling concept and a great way of pointing out the myriad inefficiencies and issues inherent in car-based infrastructure. I like the idea of deck-building, or cards as a system for this game, because it introduces a player aesthetic of uncertainty - will their new plan be better or worse? - which could motivate player stagnation or fear of risk-taking as a way of showing how reluctant our cities are to create meaningful and sustainable infrastructural changes.
I would also advocate for a set of corporate interests players must navigate as well as a base morale metric, to show the impact of lobbying and capital pressure on climate policymaking and demonstrate the unsustainability of serving those interests.