In your example, bakeries usually don't own land in highly desirable cities, they lease it from the owner. I think that's fine. The incentives here are against

In your example, bakeries usually don't own land in highly desirable cities, they lease it from the owner. I think that's fine. The incentives here are against huge capital behemoths that can buy land and afford not to develop it, costing the cities in potential consumer revenue, population growth, broken windows theory, etc. Lawyers might own the building and be able to afford the tax. I think it's fine to expect bakers cannot afford buildings in very expensive cities (unless you're some luxury brand). If owners are incentivized to develop and lease their properties, there should be more supply for a cheaper rental market.