Which of the Following Issues of Administrative Agencies Relates to the Substantive

Which of the following issues of administrative agencies relates to the substantive outcome of agencies' rule-making and adjudicating authority?

A) It is very difficult to discharge unsatisfactory employees.
B) The reward system usually does not make a significant distinction between excellent, mediocre, and poor performances.
C) The administrative process is overwhelmed with paperwork and with meetings.
D) Enforcement of some laws varies over time.
E) There is often a lack of enforcement procedures to follow up on actions taken to ensure compliance.