But the notion of breaking away into Millcreek "City" - a government independent of the Salt Lake County Council - gained sudden traction this month when the County Council rejected a public vote for a township-favored split of the Granite School District.

The suburb has stewed over what residents describe as a lack of representation for their east-side community.

"There are some bad feelings out there right now," said Rita Lund, a liaison between the county and several east-side community councils. "The people are interested in self-determination."

Millcreek City may be an option, according to a study released Monday.

Salt Lake County has released a $135,000 study that explores the feasibility of unincorporated townships ceding into their own cities or annexing into neighbors.

Although a costly move for taxpayers, the document shows that incorporation is a possibility for two townships - Millcreek and Emigration Canyon. But each community would have to pay more than double the current property tax rate.

The study suggests that incorporation isn't feasible in Magna, Kearns and White City, where property taxes would rise more than 300 percent, exceeding the state limit.

While the report lists Copperton as viable, the study's author, Christine Richman, describes it as a "false" conclusion. Without Kennecott Copper - which community officials say would resist incorporation - the township would have to raise property taxes higher than the law allows.

In Millcreek, the document adds fuel to the growing fire for incorporation.

Jay Griffith, chairman of the East Millcreek Community Council, said political change may be needed to preserve and empower his community.

"People are feeling they don't have control in their community's destiny," he said, citing the spread of so-called "monster homes" and the County Council's refusal to put a Granite School District split on the November ballot. "It makes me feel that this may be our only viable way to make our community the way we want it to be."

County Councilman Mark Crockett, an unflagging supporter of splitting the state's second-largest school district, said he wouldn't fault Millcreek for seeking city status.

Speaking of the Granite split, he said, "This issue is such a large straw that I wonder whether it shouldn't break the camel's back."

While Salt Lake County's study delves into questions of incorporation and annexation, that wasn't its primary purpose.

Project manager Stacee Adams described the document as a "policy tool" for comparing the county's services - such as police, fire and parks - to those provided by surrounding municipalities. She said the county may use the study to improve those services.

"We want citizens to have the best information available about the services they receive and the costs of those services," said County Mayor Peter Corroon.

But the analysis comes amid a larger debate about the future of Salt Lake County's six unincorporated townships - Emigration Canyon, Millcreek, White City, Copperton, Kearns and Magna. Those communities could face significant changes in 2010 when the law that protects their boundaries from annex-hungry neighbors expires.

The county study may help educate residents about their options leading up to that date, Adams said.

"Because of [the townships] strong sense of identity, the obvious question mark about whether they are going to incorporate is important," said Greg Schulz, a community council liaison who believes new development will make city status a possibility for townships like Magna and Kearns. "In some cases, it may be more of a 'when' than an 'if.' "

jstettler@sltrib.com

* The township study is available online at www.slco.org.