The result was a compromise. The Department of Labor was awarded authority to set health and safety standards, enforce them, and impose penalties for their violation. Within the departrnent these tasks were assigned to OSHA. An independent, quasi-judicial agency, the Occupational Safety and Health Review Commission, was created to hear appeals of OSHA enforcement action. The National Institute for Occupational Safety and Health within the Department of Health and Human Services (formerly the Department of Health, Education, and Welfare) was authorized to conduct research and to develop and recommend health and safety standards. Moreover, enforcement authority could be delegated to state governments with acceptable programs. This fragmented organizational structure has complicated and softened implementation of the occupational safety and health program. For example, enforcement and penalty decisions made by OSHA have frequently been modified or overturned by the review commission.