A secondary program or any new grades nine through twelve may not be established in any existing nonhigh school district except upon prior approval by the superintendent of public instruction. Application for approval to establish any such program or any new grades shall be made to the state superintendent of public instruction by the school authorities of the applicant district. The state superintendent of public instruction shall review the application in light of rules and regulations relating thereto and in consideration of the findings and recommendations of staff and agents of the superintendent of public instruction.