One of the best ways to force or heavily encourage public transportation/highway usage is to use a tree-pattern transportation network which purposefully creates bottlenecks that are alleviated by high capacity roads or public transportation shortcuts. Basically sims always take the shortest path regardless of traffic, they are randomly matched 1:1 between residential wealth level and the distribution of jobs from each job-producing building, and sims of certain income categories have restrictions on which types of public transportation they will take (e.g. You can definitely get un-modded simcity 4's public transportation and highways to function without a mod, you just need to know a decent amount about the game. That made it feel more like a simulation. Might just be me, but I never felt like I could fail at C:S whereas in SimCity you could make a few stupid decisions or expand too fast and start losing money, and all you could do is watch the city degenerate into a wasteland that can't be gotten out of (without cheating anyways).
The SimCity games felt more like they were a challenge needing to balance the budget and build a sustainable city all while being resilient to events like disasters. But that's what I'd consider sandbox: using your own creativity on a blank canvas with almost no chance of entering a complete failure mode you can't recover from. You could maybe invent your own goals, like creating a specific look to your city or building the most density possible while maintaing efficient transportation. To me it didn't feel like there were many challenges or ways you could irreparable damage your city in City Skylines. I don't think that's quite what the OP meant by sandbox vs.
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