Building upon the previous response I gave, in order to have a practical or functional definition, we need precision in what it means.
I will agree that with some definitions, and even interpretations at times of different laws and practices, we look at what the intent is behind certain policies and programs. The advantage of having a regulation is twofold. It allows further elaboration, and it also allows for consultation, so people can actually comment on it to make sure it meets the intended outcome that Parliament would be seeking.