In conducting a review of a decision by the department to refuse to issue or renew a permit, the department shall consider:
(1) any applicable factors listed under Section 12.604;
(2) the applicant's efforts toward rehabilitation;
(3) whether there is a substantial likelihood that the applicant would repeat the conduct on which the refusal is based;
(4) whether the conduct on which the refusal is based involved a threat to public safety; and
(5) other mitigating factors.