I'm not 100% sure what the conditional "not approved by the commissioner" statement means here, but I would think putting LED lights into halogen housings would fall under this point:

"Any additional auxiliary or after-market light(s) not designed to enhance safety and have not been approved by the Commissioner, are placed on or in the vehicle, whether flashing or burning"

I work as an engineer at an automotive lighting company. I will die on this hill stating LED lights in halogen reflector housings are blinding for other drivers and are less effective for lighting the road ahead of you. LED's typically produce more lumens (e.g. they're brighter at the source) but when not aimed correctly they produce less lux (light measured at a specific area) where its needed. The human brain is easy to fool, and LED's fool the brain into thinking the lighting is better because the entire field of view is brighter, but usable lighting is actually worse because the "hot spot" aimed down the road in front of the vehicle is not as bright.