State of NJ Dept. of Environmental Protection & Energy; Division of Fish, Game & Wildlife makes the laws.
These guys (NJ Herp Society) are a society/club of fellow keepers of reptiles and amphibians. They don't make the laws.
They've been very helpful to me in finding the laws that apply to keeping my turtles legally. Fortunately I only had to pay $10 for my permit. I guess the money the state collects for permits goes to conservation and protection of native species and habitats (I hope).