(1) The board of public education shall not consider an appeal from a denial by the superintendent of public instruction based on 20-4-104, MCA, if the appellant has made an appeal to the board from the denial of a teacher, specialist or administrator license within three years prior to the application which is at issue, and that appeal was denied by the board following a hearing, unless the appellant can show substantial changes in circumstances relating to the appellant's eligibility for a license.