"It's my view that at least half the board would be what I call regular users, and that includes the bus and train," he said.

From the position of the Legislature, most lawmakers, including Democrats who are seen as transit-friendly, say "noise" about whether UTA is doing a good job has increased over the years, especially as the agency has expanded into rail operations. They worry if bus service is being neglected, if fares are set too high and if UTA is receiving too many tax dollars compared to the Utah Department of Transportation.

This summer, Rep. Wayne Harper, R-West Jordan, is researching whether the agency should operate under state control, or if policies should change again so that the UTA board is more involved in day-to-day decisions.

"They're a fast-growth transit district that has really expanded its mission from being a bus service, to light rail, to commuter rail, and they are experiencing the growing pains, angst and also the scrutiny that comes along with that," Harper said. "I believe there should be some changes, but the nature and depth of those changes is what we're looking at right now."

Harper ran a bill unsuccessfully last year to address some of his concerns about the transit operation and may have another bill for the 2008 session.

Sen. Curt Bramble, R-Provo, said questions about the agency are justified.

"Each year, it seems like the underlying noise about UTA seems to increase a little bit," said Bramble, a former member of the UTA Board. "I'm not saying the model is broken. I'm saying that you are hearing more and more rumblings about UTA. When that happens, it would be appropriate to look at it."

But UTA officials say that the bill Harper proposes would devastate the agency, both financially and in terms of its ability to provide service. The bill could place the agency under the jurisdiction of the Utah Department of Transportation, which builds roads, not transit lines. And UTA's budget, which comes from local tax dollars, would go into state coffers.

One political observer said he believes attempts to put UTA under state control are a "money grab." Last year, the agency received $138.5 million in local sales-tax revenues. The money, if under state control, could go to roads or other state projects, rather than transit.

In terms of changing the board's functions, Gary Cornia, a professor in Brigham Young University's public management program, said that in general, most corporate boards serve to establish a strategy or vision for a company and avoid micromanaging.