I just built a tiny test bakery and it was closed.
I went into town view and clicked on its map tag.
I clicked real estate. There was a menu choice that said something about additional requirements to open it. I forget the exact words.
I clicked on this menu and it said I needed to spend an extra 50,000 on the lot. I added an expensive fountain and it became open.
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Comments
If you do not own the property then I do not believe there are requirements.