I would not call it a city builder unless you stretch this category to include games with no map at all. I'm not sure if this genre has a name but it's basically a turn based game with the state modeled as a fixed length vector of numbers which represent resources or dangers. The player interaction is also limited to inputting numbers which the game logic translates into deltas on the state vector.

There were lots of games like this, for example https://en.wikipedia.org/wiki/Mugsy_(video_game). "How many boys do you want to send collecting payments for protection?", "Rival gangs are on the rise. How much money do you want to spend on guns?".