The commission shall hear the appeal and may, in its final order, affirm, overturn, or modify the action of the city from which the appeal was taken. The commission, on its own motion, or at the request of any party to an appeal, may refer the appeal to SOAH for hearing prior to commission decision. If the commission issues an order without prior referral to SOAH, the record on any appeal from the commission's order under §86.59 of this title (relating to Appeal of Commission Order) shall include the pleadings of all parties, including attachments, and the argument and testimony before the commission, except where specifically indicated in the commission's order.