I agree, the issue is whether making a photo-map is surveying. If he was ascertaining property boundaries, right of ways, or other features from legal descriptions of a property, it's surveying. If he's simply documenting construction progress, it's not.
Having worked in large commercial construction projects and having some experience with the various licensing boards in NJ, I would suspect that the state is practicing protectionism and is willing to go beyond what the law actually allows to secure work for the members of the licensing board - who are all going to be surveyors.