... commissioner may prescribe . . . . [N.J.S.A. 17:22B-13.] N.J.S.A. 17:22B-20 authorizes the commissioner to 'promulgate any rules and regulations as ... protections of consumers from unfair practices by public adjusters. See N.J.S.A. 17:22B-20, . . . B-3, . . . B-12, and . . . B-13.' The commissioner adopted ... effectuate the purposes of [the] act pursuant to the [APA] . . . .' N.J.S.A. 17:22B-20. '[A]n administrative agency only has the powers that have ...