[@1Hawkeyes][@AtomicNut][@Gilgex] How about this: Villains are at war over the city, with the few heros there are trying desperately to keep loss of innocent life and liberty as low as possible, while trying in vain to push evil out of city, Neutrals and free agents hired by all side (or just hop into battles when they feel like it, depending on the person) and fight as well.  Kinda like when the Mafia and Mobs ran cities like NY and LA, and the police tried in vain to take them out, and keep loss of life to a minimum.

Something like this could be interesting...