In Board of School Comm'rs. v. James, 96 Md. App. 401, 625 A.2d 361 (1993), the Court recognized that an administrative regulation is "legislative," so as to carry the force of law, if "it 'affects individual rights and obligations' and ... the agency intended the rule to be legislative as 'evidenced by such circumstantial evidence as the formality that attended the making of the law, including rule making procedure and publication.'" Id. at 422.