While it will be way more common in the late game, you cannot expect every starting city to have every service ever. Everything else is to be treated as a luxury. You can build a very large city with just water, electricity and some fire departments on its own. Your tick rate should be what you are looking at, your bank account is your buffer for emergencies or adjustments that need to be made (like moving services). Never go negative with your income tick by placing a service, that will just escalate things. After this has been accomplished, you can look at your money tick rate and decide which areas of your city you want to improve by introducing services (potentially just the higher density areas). Try to raise a comfortable amount of money and also a comfortable monthly tick rate. Do build a city for money first, no unnecessary services (healthcare, police, education) at the start.
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