This basically flips the judicial review logic from "did the regulator act within the scope of the law?" to "are there other ways the regulator could have acted that would also be within the scope of the law? If so, the judge decides which set of actions the regulator must take"

I.e., anything Congress does not explicitly state in a law is now determined by federal judges. At the extreme, this is aggrandizing a very wide scope of power to low-level federal judges to essentially ignore congressional intent.