Balgruuf has been extremely lucky so far in dodging the presence of the Empire in his city. His people do, for now, have freedom of religion and speech, so things look pretty good from where he sits. But that means he is not fully aware of what is going on elsewhere in Skyrim and how others are suffering. He doesn't know how close Ancano came to causing a disaster. He doesn't have to look at a squad of Thalmor justiciars parading around in his palace, trying to recruit informants to help them with their dirty work and telling anyone who asks that the Empire only exists because the Dominion allows it to exist. He doesn't have Thalmor hirelings skulking around his city or standing outside his gates with assassination contracts in their pockets. Yet. This can't last forever. Tullius wants into Whiterun as badly as Ulfric does, for the same reason: it's a strategic position. Tullius has reached the point where he's willing to "embellish" the facts to get what he wants, and I have no doubt he would have eventually gotten around to stronger forms of arm twisting if deception was not enough. Once the Legion troops are in place, I suspect the Thalmor won't be far behind. They have a presence in Markarth and Solitude, and no reason not to want one in Whiterun given its central location and status. As for Balgruuf standing up for his own people, please tell me exactly how he stood up for them when the son of one of the leading families of his city was taken away by the Thalmor for torture. Did he even so much as write a letter of protest to Tullius or make any attempt to find out whether Thorald was alive or dead? Was he outraged that one of his people was hauled off without the benefit of a fair trial? I see no sign that he cared even a bit.