An effort that could significantly alter how Carroll County is governed was renewed yesterday, when a state delegate said he would push for legislation to expand the board of commissioners from three to five members.

The rationale for such an expansion is the same as it has been in previous, unsuccessful attempts to bring about the change: Under the current arrangement, two commissioners can team up and effectively dictate decisions to their colleague.

Del. Donald B. Elliott, a New Windsor Republican, said yesterday that he would once again sponsor the bill - and he appears to have reason to expect a different outcome this time.

Sen. Larry E. Haines, leader of Carroll's all-Republican delegation and an opponent of past attempts, now says voters should be able to decide the matter.

"I will not stand in the way of taking this to referendum," Haines said in a meeting with the county commissioners yesterday.

If Elliott's measure wins the General Assembly's approval, it would appear on the 2004 presidential-election ballot. If passed, the change would take effect with the 2006 board.

"I have been talking to my delegation to get them on board with this," Elliott said. "The important thing is to let this go to referendum and let voters make the decision."

During the previous board of commissioner's tenure, Commissioners Donald I. Dell and Robin Bartlett Frazier consistently voted together, effectively leaving the third commissioner, Julia Walsh Gouge, with a limited say in decisions.

Susan W. Krebs, newly elected delegate representing South Carroll, said a larger board would eliminate the persistent 2-to-1 votes on key issues and make for more efficient government.

"Because of the open meetings law, two of you can't even have a conversation on policy because you are a quorum," said Krebs. "It has to be difficult never having a political conversation with your peer."

Once the bill is introduced, Haines expects debate to center on whether the commissioners would be elected at large or by district.

Carroll might follow the example of St. Mary's County, where four commissioners are elected by district and one at large, Krebs said.

Elliott will push for delegates representing districts defined according to population.

"After all, that is how we work in the legislature and it works fine for us," he said. "We all understand the at-large problems in the county."

Haines said he would prefer that all voters elect the five commissioners, he said.

But Haines questioned whether the proposal would win voters' support. Voters rejected a similar plan in 1998, when they also turned down a proposal for charter government.

In the same breath, Haines says the county may be approaching the time when even more drastic change will be supported.

As Carroll's population grows, the county may be getting closer to adopting a charter that would establish a county executive and council, Haines said.

"The reality is with growth will come charter," he added. "I won't rule that out in the next decade."

Carroll voters rejected charter government in 1984, 1992 and 1998. Opponents have argued it would be too costly.

Last year, Elliott tried to revive the proposal to expand the council, but the measure died in the legislature.

"The word went out in 1998 to vote against both measures and I think the election was skewed," said Elliott. "I am really hopeful that this time it will pass with voters."

During the recent election campaign, Commissioner Dean L. Minnich said he frequently heard questions on charter government and an expanded board.

"I favor anything that improves the system so that we are not held hostage to a small group of people," Minnich said yesterday.