Mobility as a Service (MaaS) has been pitched as a user-centric approach to resolving problems related to passenger transportation, and yet the extent to which users are engaged in development activities is an unresearched topic within the MaaS field. This paper seeks to address this gap by exploring ways in which users' needs and preferences were considered when developing service concepts to be piloted during four field operational tests (pilots) of MaaS, all of which took place in Gothenburg in the last decade. In addition to describing the focus of development activities, the study examines the reasons for variance across cases, including the set of challenges faced when seeking to roll out MaaS in the marketplace. In particular, the study deliberates on the ways in which shortcomings related to user engagement may influence MaaS more generally, concluding with implications for research and practice.