"The commissioners meet on Wednesday. But department heads don't have anybody there on a 9-to-5 basis. Nobody's in charge," said Eric Easterly, head of the committee formed in January to study Summit County's government.

The committee soon will forward a formal proposal to replace the three-member commission with a five-person council and an appointed executive, Easterly said.

Before the measure goes to voters in November 2006, however, it must be approved by the sitting commissioners.

Commissioner Ken Woolstenhulme criticized the plan, saying it will add bureaucracy. Commissioner Sally Elliott endorsed it as something overdue. And Commissioner Bob Richer hinted that he might support the change, but said he wants to scrutinize the proposal before taking a position.

However, because voters last November overwhelmingly sought to examine the form of government, the proposal to change it is likely to end up on the ballot, observers say. If approved, Summit would be the sixth Utah county to switch to a council.

The traditional commission arrangement puts the reins of the legislative and executive branches in the hands of three elected members.

The study committee's proposal would not only take executive duties from the elected body, but also would dilute each council member's because there would be five instead of three.

Although the commission form works well in rural areas, Summit County has outgrown it, Easterly said.

"In Summit County, where the bulk of the population lives outside of incorporated areas, the commissioners are just overwhelmed," he said.

But Woolstenhulme echoes sentiments of many in rural eastern Summit County who say an appointed executive adds a layer of bureaucracy but not much else.

"It would be a waste of taxpayer money," he said. "You show me one county [that switched government forms] where people are happy with it, and I'll buy you a steak."

Directors in Summit County's public works, community development, health, library, human services and information technology departments are capable of day-to-day decision-making, Woolstenhulme said.

"We already have enough people to do our job," he said. "If there is an occasion where we [commissioners] are needed, we aren't that far away. We can be there."

Elliott, on the other hand, has been pushing for such a change for a decade.

"It's appropriate to separate the executive from the legislative," she said.

A former member of the Park City Council that appoints an executive city manager, Elliott said the proposal is a good one.

"It's quick, efficient and responsive," she said.

There are various alternatives to the commission form of government.

Cache County elects an executive as well as a seven-member council. In Grand and Wasatch counties, seven elected council members appoint an executive. Morgan County voters adopted a seven-member council with no executive.

And Salt Lake County elects an executive (mayor) as well as nine council members.

A change in Summit County to a council would not affect the independently elected offices of county auditor, assessor, attorney, clerk, sheriff or treasurer.

csmart@sltrib.com