When a new policy or program is developed, the contending parties often work to have its implementation awarded to an agency that they think will act favorably toward their interests. The case of occupational health and safety legislation is one in point. When it became evident in 1970 that legislation would be enacted, attention focused on how it would be implemented. Business groups, along with the Nixon administration, did not want the Department of Labor, which they viewed as pro-labor, to set health and safety standards. Nor did they want standard-setting and enforcement to be lodged in the same agency. Their preference was to have an independent board to set standards, Labor to inspect workplaces, and either the courts or another agency to impose penalties and hear appeals. Organized labor, spearheaded by the United Steel Workers, and liberal Democrats wanted all standard-setting and enforcement authority located in Labor.