(a) Each and every use of buildings and grounds owned or controlled by the department shall be upon such terms and conditions contained in an agreement to be furnished by the department.

(b) No alteration or modification of the agreement is permitted without the prior written consent of the commissioner or his duly authorized representative.

(c) Use or occupancy of any buildings and grounds owned or controlled by the department shall not be permitted prior to execution of the agreement.

(d) Use charges will reflect charges for the space occupied and, if practical, charges for utilities and other services provided to the user.