The Administrative Procedure Act (Chapter 25 of Title 3 of Vermont Statutes Annotated, also known as the "APA") governs the adoption of rules by executive branch agencies, including the State Board of Education. The State Board, by virtue of 16 V.S.A. §164(7) (and other statutes on particular subjects, for example special education--16 V.S.A. §2959(a)), has the authority to make legally-binding rules in order to assist in the interpretation, implementation, and enforcement of the education statutes.