Whenever there is no eligible list from which a certification can be made, the Personnel Director shall so inform the appointing authority and if in the judgment of such appointing authority it is not expedient to await the establishment of such a list, he shall submit the application of any person or persons deemed by him to be suitable for noncompetitive examination. If on review of the application and check of the references, the applicant is found to possess the minimum qualifications established in the classification plan for the position to be filled, the Personnel Director may authorize his appointment as a provisional employee. A provisional appointment shall not be for longer than three months during which an examination shall be given and an eligible list established. The provisional appointee shall not be eligible for regular appointment unless he has taken the examination and stands high enough on the list to be reached for certification.