Sections 7.09, 41.41 and 43.02 of the Mental Hygiene Law grant the commissioner the power and responsibility to adopt regulations that are necessary and proper to implement matters under his jurisdiction and to establish standards and methods for determining rates of payment made by government agencies pursuant to title 11 of article 5 of the Social Services Law for services provided by facilities, including residential treatment facilities for children and youth licensed by the Office of Mental Health.