A regulatory agency with the responsibility of administering regulations uses a system with joint-usage capabilities, including data about regulated entities that are subject to the laws and rules administered by the agency and software for accessing the data. The joint-usage capabilities are preferably used by all subdivisions or departments of the agency that have similar functions or administer regulations on the same regulated entities. Variations in the ways that the departments administer regulations are handled two ways. First, each regulated entity may have several subject items defined in the joint-usage data with each subject item related to the regulations that a single department administers. Thus, if two departments are responsible for a single regulated entity, each may create one or more subject items in the joint-usage data describing the regulated objects, activities, or other aspects of that regulated entity. Second, when one department's regulations require storage of data that is inconsistent with how the majority of departments administer their regulations, department- or program-specific capabilities are used to store the program-specific data. The system merges the program-specific data with the joint-usage data, so that the users have a seamless view of the data related to administering regulations applicable to the regulated entities. This enables the regulatory agency to produce "multimedia" permits, inspections and enforcement orders. The system is flexible enough to be used equally as well by separated program areas.