Further, we cannot disregard the fact that residents of certain states, like New Jersey, may simply be unable to satisfy state requirements for a license that differ from New Hampshire’s statutory requirements. Because the rules at issue here effectively incorporate into New Hampshire’s requirements for concealed-carry licenses the requirements established by other states for the issuance of concealed-carry licenses, the rules change the requirements of RSA 159:6, and thus, “add to, detract from, or modify the statute which they are intended to implement,” Mays, 161 N.H. at 473 (quotation omitted).