The federal Clean Water Act charges the environmental protection agency with the power to create a permit system that will allow pollution to be discharged into a navigable body of water and to grant those permits. The EPA granted a discharge permit to ABC Concrete Company. The permit listed set of conditions, all of which are the product of formal rulemaking by the EPA that must be satisfied before ABC Concrete can discharge. ABC wishes to challenge the EPA’s determination of conditions in federal court. What standard of review should the court follow?