(a) “agency” means any officer, department, bureau, division, board, authority, agency, commission or institution of the Virgin Islands of the United States except the judicial and legislative branches.
(b) “Regulation” means every rule, regulation or order, amendments thereto or revocations thereof, made by any agency, except a rule, regulation or order which—
(1) relates only to the organization or internal management of the agency; or
(2) relates to the use of public works, including streets and highways, under the jurisdiction of any agency when the effect of such order is indicated to the public by means of signs or signals; or
(3) is directed to a specifically named person or group of persons and does not apply generally throughout the Virgin Islands.