Strictly speaking, the NCRA is not a State agency. It is an “independent public” agency created by the State legislature. The NCRA is not in the hierarchy of State agencies, does not appear as an agency of the State in the State budget, and does not answer to any executive branch of the State government. Although there are State liens, title to NCRA properties does not belong to the State; title is vested directly in the NCRA. Nevertheless, its employees qualify for CALPERS retirement benefits. There is nothing in the NCRA enabling legislation that would make it subject to the State’s administrative rules and regulations. Unless there is something in the Consent Decree, NCRA may not be subject to the same restrictions as a true State agency.