Licenses shall be issued in the order in which applications are received and on a nondiscriminatory basis, without regard to the content of the message the applicant wishes to convey, except in the case where such message is clearly against public policy, shocks the collective conscience of the general public, or is directly contrary to the health, safety or welfare of members of the general public. However, at no time shall one type of exhibition become so dominant over the whole so as to prevent the Division of the State Fair from offering a varied and effective group of exhibitions.