The commissioner shall classify and license applicants for a proraters license in accordance with the nature of their existing or proposed business and the extent of regulation required thereby in the public interest as follows:

1. (a) A special proraters license shall be issued to a qualified applicant to engage in business as a business agent.

2. (b) A general proraters license shall be issued to all other qualified applicants.

   Whenever the term “prorater” is used in this division with reference to a licensee it shall be deemed to mean a general prorater unless otherwise provided.