The reason I didn't particularly enjoy City and played mostly on Outlands was the RP quality of the average-Joe and this may be why City was how it was.
Citizens - Usually nothing to do, if you were to go a rebellious citizen into a rebel-esque character, then you can roleplay going against the UU and it's somewhat interesting. If you were to go a neutral citizen and honestly not care about the UU, I don't know what to tell you, why even bother playing. If you were to go a loyal citizen you can join the CWU or you can become a CP unit and I'm not going to talk about the CCA because that is out of my realm of knowledge, so this leads into my next point.
CWU - I used to be in the CWU and it wasn't fun, that was just it. At least as a normal loyal citizen I could sit on a bench and passive RP even if it was boring; I didn't have to work my ass off to sell donuts and milk. If CWU does become the primary source of medical services, it could take a turn for the better, but when I played it, man was it a pain.