D. A city can afford to make repairs on only one of its schools
Explanation:
In option A, the city can afford to function with reduced taxes just to encourage business which means it has enough resources to buttress that.
In option B, the city can afford to borrow a large sum of money which it is sure it will be able to pay off. There is no scarcity in building the banks.
Option C shows that the city has enough reserved resource with which to assist its citizens.
D is the only option that shows actual scarcity or limited resources in the city.
