Under What Circumstance Is a Bureaucratic Agency Most Likely to Rely

Under what circumstance is a bureaucratic agency most likely to rely on norms in decision making?

A) when an agency's stated goals are unclear
B) when following the mandates of the Administrative Procedures Act
C) when attempting to resolve legal disputes
D) when an agency is in a period of transition between agency heads
E) when an agency's actions are opposed by the president