As used in this chapter: “Local or regional agency” means all political subdivisions, including counties, cities, and towns, and other governmental agencies in the Commonwealth, other than state agencies. “Publication” means all documents, regardless of physical form or characteristics and issued by or for a state, local, or regional agency, in full or in part at government expense, that are created for the research or informational use of the public. “Publication” shall not include documents that are developed solely for the agency’s administrative and internal operations. “State agency” means every agency, institution, collegial body, or other state governmental entity of any branch of government.