At the discretion of the department, a provisional license, certification, or approval may be issued to an applicant who, or whose facility, fails to conform in all respects to this chapter and the rules of the department. The department may set conditions under which a provisional license, certification, or approval may be issued, and may issue such a license, certification, or approval for any period of time, not to exceed two years, as the department may deem reasonable or appropriate to the circumstances of the case. The department may not be compelled to issue a provisional license, certification, or approval.