Within two years, a new federal rule will force oil- and gas-producing states to crack down on methane gas emissions — a major driver of climate change. A handful of states already have rules that force drillers to increase monitoring and upgrade equipment, which advocates say provided an effective template for the federal action. But many other states will be starting from scratch. In those states, some officials and oil industry leaders say the burden on regulators and fossil fuel producers may outweigh the benefits of reduced emissions. “Is creating more paperwork going to have the effect t…