You need to expand very, very slowly at the beginning.
No coal power plant at the start, only wind- or solar power.
No long roads, start with some industrial areas, then build some road pices and set some residental and some commercial areas.
The industry will generate a demand for workers, so residental houses will be build soon.
Do not forget to give some water to the people.
A single water tower will be enough for a small settlement.
No need for schools, doctors, fire fighters or police during the starting phase.
You have to be patient, after a while your income will move from negative to positive.
With some more cash you can expand very slowly and after a while you can try to archieve a higher level for your residents. For this you need a town hall and later parks, hospitals and some more public services.
Please always keep in mind not to place industrial areas near the residental ones. No one wants to live near dirty factories
Btw.:
You can play the Sandboxmode also. In this mode there is no money restriction and you can build the city you want
