scarlett006

Means' is used in two idiomatically correct expressions as noted below. These expressions however have different meanings:

x {as a means of} y = x is a type of y
x {as a means to} y = x is a method to achieve y

For example:
Walking is a means of exercise.
Some people use walking as a means to stay fit.

We will now put this in the context of the sentence in question:

City is stressing arts as a means to greater economic development
The usage of expression as a means to is appropriate here since "arts" is a method to achieve "greater economic development.

Thus, whenever you have to make the decision between using "as a means to" or "as a means of" always check which of the two meanings will make sense:
"a type of" or "a method to achieve"

I hope this helps.

from  e-Gmat