We may grant a permit on behalf of all Indian landowners of a fractionated tract as long as the owners receive fair annual rental. Before granting such a permit, we may offer a preference right to any Indian landowner who:
    
    
        
        (a) 
         Is in possession of the entire tract;
     
    
        
        (b) 
         Submits a written offer to permit the land, subject to any required or negotiated terms and conditions, prior to our granting a permit to another party; and
     
    
        
        (c) 
         Provides any supporting documents needed to demonstrate the ability to perform all of the obligations under the proposed permit.