I live outside a small city that has lots of manufacturing jobs back in the day. The city itself is a hole, the towns surrounding it can attract modern businesses due to the freeway being close, houses being nicer and land being cheaper and more abundant. Microsoft has built/is building a fairly large campus in the surrounding area but the city struggles and is mostly bars in its downtown area.
I don't know what they can do. They can't really raise taxes and the 4 main artery roads from the freeway are old, so wind and are slow and built up. Not great for any sort of commute.
They get opportunities once in a while but seem to make bad choices. They sold a property overlooking the lake to a developer for condos for cheap when they don't need yet more condos. They're looking at selling an old factory area, that needed clean up, to the waste water treatment plant when there must be better options for a 100 acre lakefront plot.