A large private bus company in Empire City went bankrupt. At Empire City's request, the state legislature established a legally separate public benefit corporation named Metro City Bus. In the law establishing Metro City Bus, Empire City was authorized to appoint Metro's entire governing body, and Metro was authorized to issue tax-exempt debt to assume the assets of the private bus company. When Metro City Bus went to prepare its financial statements, a question was raised. Was Metro City Bus a government?

Discuss whether Metro City Bus is or is not a governmental entity.

What are the specific factors in this situation that cause Metro to be one or the other?