Problem with city services (Cities: Skylines)

I have such a problem: City services (police, hospital, firemen, etc.) do not work completely. That is, with 19-20 machines in these services, only 2 (and no more) are used, and so on everywhere. It is worth building another building and it uses only 2 services. cars. Because of this, many citizens get sick, buildings often burn down, there are not enough cars to deliver the dead to crematoria and cemeteries. What is it? Maybe someone knows?