In Board of Trustees v. Freedom of Information Commission, 181 Conn. 544, 436 A.2d 266 (1980), the court adopted the 'functional equivalent' test of the federal courts to determine whether an entity is a public agency. In that case, the town of Woodstock paid the entire tuition fees of those pupils who resided in the town and attended the academy. Id., 547. The court, in Board of Trustees, found illuminating that 95.32 percent of the academy's operating expenses came from tuition payments received from the towns of Woodstock, Pomfret and Eastford. Id. In Board of Trustees, Woodstock was operating under a state constitutional mandate that a free public education at the secondary school level be provided to all children residing in Connecticut. Id.