A person aggrieved by a regulation or order to pay wages that the Commissioner adopts under this subtitle may file a complaint in circuit court for the county within 60 days after the date of publication of the regulation or order to pay wages to have it modified or set aside. A copy of the complaint shall be served on the Commissioner. Unless the court specifically orders otherwise, the commencement of proceedings under this section may not operate as a stay of the regulation or order to pay wages. The court shall determine whether a regulation or order to pay wages is in accordance with law. If a finding of fact is supported by substantial evidence, the finding is conclusive.