Would it be too clichéd to go with some Japanese systems?
The simplest would be the Japanese feudal system which went from:
Shogun
Daiyomo
Samurai
Peasants
If a charismatic leader was able to gather together several dispirit groups who happened to control the means of keeping the city together, the leader of each group would be the Daiyomo and many of the gangsters could become the Samurai.
To make it less obvious, Tokugawa could base his control on the concept of the Japanese corporate system. This is essentially a conglomerate of inter-linked groups that together form the means of production. The inter-dependency in this case could be a further means of control for the leader with hostages of every "family" living with the Shogun.
This has the benefit of being different to other ways that warlords have been introduced in TW2K.
Japanese Corporate Theories break down to:
•Management technology is a highly transportable technology.
• Just-in-time production exposes problems otherwise hidden by excess inventories and staff.
• Quality begins with production, and requires a company-wide "habit of improvement."
• Culture is no obstacle; techniques can change behaviour.
• Simplify, and goods will flow like water.
• Flexibility opens doors.
• Travel light and make numerous trips, like the water beetle.
• More self-improvement, fewer programs, less specialist intervention.
• Simplicity is the natural state.
Something like this could form the basis of Tokugawa's plans. Basically, he could initially secure the means to control organised violence within the city, both legal and illegal and then sets up "industrial clans" to secure certain vital resources and organisations.
The key to these would be protection: Tokugawa insinuates his own "samurai" into the clans that have loyalty to him, or at least something outside the clan as security and in exchange certain members of each clan "visit" Tokugawa.
You could combine the two ideas as the culture develops: industrial clans in the city with protected key workers and a more transient population of "peasant" workers and then, agricultural clans that represent the old Feudal systems with a Daiyamo appointed by the Shogun and Samurai supporting them whilst peasants labour to produce food.
Anyway, it's a few ideas to kick about.
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