There are many comments here that are confused about what the bill actually says. Headline very much implies something about a law banning VPNs. But that's not what the headline really means. So it's misleading.
Another reading of "Utah is close to banning VPNs" is "Utah did something that is not banning VPNs but (as an editorial opinion) is thematically and logically adjacent to that concept." This matches reality (under some viewpoint) but is an unnatural reading.
Hence, the sentence "Utah is close to banning VPNs" is misleading, as evidenced by others' comments. That you read the headline "correctly" does not show the headline to be forthright.