... to the highest bidder at a public sale pursuant to N.J.S.A. 27:12-4. This latter statute provides that the Commissioner may dispose of ... than an exchange, the sale would be authorized pursuant to N.J.S.A. 27:12-4, which permits the Commissioner to sell land unneeded for highway ... easements that have a value of $100,000 or less." N.J.S.A. 27:12-4 (authorizing the Commissioner to "exchange or sell at private sale ... Commissioner of the ability to exchange lands as permitted by N.J.S.A. 27:12-4. Disposing of the lands at a public auction would also ...