Yes, it can.
However, when you change the “shall” examine, in section 25, to “may” examine, you are essentially giving the officer the power to not even look at it. So if someone says they have merit to their application, the officer says, “You know what, I don't even need to listen to the merits of your application”. That is the difference between an applicant submitting the application to the minister and the minister “may” grant on the merits of the case, and the minister not looking at the application.