Most likely to increase economic growth:

While some city-states may have had assemblies or councils composed of citizens, these bodies did not wield the primary power. The priest-kings held ultimate authority, and citizen assemblies were often advisory rather than governing, particularly in the context of theocratic rule prevalent in Mesopotamia.

Military leaders could influence city governance, especially during times of war, but they did not generally serve as the primary rulers of city-states. The priest-kings were responsible for both military and religious functions, and their rule was legitimized through divine sanction rather than purely through military might.

Scribes played a critical administrative role by documenting laws, trade, and religious texts, but they were not rulers. Their work supported the governance of the priest-kings, who utilized their skills to maintain records and enforce laws but did not hold political power themselves.

Merchants were vital to the economy but did not govern city-states. Their economic influence grew in wealth and trade, yet political power remained with the priest-kings and other elite classes, who controlled land and resources.