....if a trustee performs functions in addition to holding bare legal title, but does so strictly on the instructions of the beneficial owners without any discretionary powers and is acting as an agent, the trust may still be a bare trust. For example, the bare trustee may perform property management functions such as leasing commercial property to tenants specified by and for the account of the beneficial owner.
On the other hand, where a person acts under a duty to manage and/or dispose of the trust property, and the person has independent or discretionary power or responsibility to do so, the Department considers this person to be acting as a trustee of the trust and not as an agent of the beneficial owner.
...[I]t is necessary to examine the nature of the duties contemplated by the trust to determine whether the principles of agency rather than the principles of trust apply....Where no [trust] documents exist, but property is nevertheless held in trust, the Department will generally take the view that the principles of trust rather than agency apply. However, it will consider surrounding circumstances....
[T]he Department considers that a trust and agency relationship may co-exist in certain situations. Consequently, some duties of the trustee may be performed as trustee, others as agent.