I live in Elma. I know the mayor to be a person that has lived in Elma his entire life and I have spent a lot of time with him and his family over the last 22 years or so.
I will agree with you that it's a bit of a good ole boy's network at the city council meetings but, not all is as it seems. There is a lot of legwork and preparation that goes into MOST of the proposals that come across at the meetings.
The Mayor and the council members have really already made their decision on most issues before it gets brought up at the meetings. On the occasions where there is a difference of opinion amongst the council members, there is a very "open discussion" type of format. They simply talk it out, weighing the pro's and con's and if they can't get to a point where there some sort of agreement, they table the issue and take more time on it.
I honestly believe the Mayor has the city's best interest at heart and the reason a lot of the council members seem to just go along with his decisions is because generally, they are good decisions IMO.
Not to say that things could be done differently and I am 100% all for doing some legwork and working with you to put together a proposal for a community rec. center as there is a huge need for something like that.
If the proposal makes sense, I believe the mayor and city council would be on board with it as well.