Judicial review of an agency decision must be confined to the record. Knowles v. State ex rel. Lindeen, 2009 MT 415, ¶ 20, 353 Mont. 507, 222 P.3d 595. Judicial review is confined to determining whether there is substantial evidence in the record supporting the findings of the agency. Harmon v. Deaconess Hosp., 191 Mont. 285, 290, 623 P.2d 1372, 1375 (1981). The court may not substitute its judgment for that of the agency as to the weight of the evidence. Knowles, ¶ 21. The question is not whether there is evidence to support different findings, but whether substantial evidence supports the findings actually made. Knowles, ¶ 21.