The latter, Rorrer confirms, are somewhat cautionary.

"It is crucial to determine how a division would affect the district's capacity to provide programs and services that result in high achievement and other desired outcomes for students, teachers, and the community," the report states.

"If indeed there is widespread dissatisfaction with the ways in which any district is serving its students and its patrons, there may be more productive, equitable and efficient ways to address the problems of district responsiveness."

Examinations should consider the way a district communicates, how decision-making is structured and how power and authority are distributed, perhaps in other forms of participation, including citizen advisory groups.

Indeed, "how you govern a district is equal or more important than the size," Salt Lake County Mayor Peter Corroon said. "If your school districts are merely rubber stamps of administrative decisions, then they serve no good purpose. They need to be policy boards that will involve local input in school district policies."

Pace says state law allows only one form of school district governance, whereas cities have many choices. Part of the discussion could include whether to petition the Legislature to allow alternative forms of governance.

"I think (the split and this) are totally separate issues, and obviously, the governance issue could be of potential benefit to any school district in the state, regardless of their size," Pace said.

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