Text ads or small banner ads in the pages would just be easier, since the publisher wouldn't make any money long-term if people get annoyed and stop reading the books. Schools won't go for it, because students cant just stop reading because of a beer ad that the marketer thinks they want (in the middle of class). At-least public domain books are free.

all the city needs to do is hire contractors to put up the infrastructure, then contract a business to run it. if the city decides they want to change the plumber on the pipes, they can then do that because they own the infrastructure. its like a house owner who hired the construction company to build their house, they own the house, but they payed someone else to build it.