לֹא־תַעֲל֥וּ עָלָ֛יו קְטֹ֥רֶת זָרָ֖ה וְעֹלָ֣ה וּמִנְחָ֑ה וְנֵ֕סֶךְ לֹ֥א תִסְּכ֖וּ עָלָֽיו׃
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Chizkuni
אשר לא צוה אותם, “which He had not commanded them (to offer)”. The meaning, as opposed to the translation, is: “that He had commanded them not to offer.” Proof of this is to be found in Exodus 30,9: לא תעלו עליו קטורת זרה, “do not offer alien incense upon it.!” An example of a similar construction is found in Jeremiah 7,31: לשרוף את בניהם ואת בנותיהם באש אשר לא צויתי, “to burn their sons and daughters, which I did not command.”
Da'at Zekenim
אש זרה אשר לא צוה אות, “strange fire which He had not commanded them (to use).” The Torah implies that they had already been warned not to use such fire as is written in Exodus 30,9: [Actually, in that verse, the prohibition is not to offer strange fire, but not to use a strange mixture of incense. Ed.] The reason the Torah uses the unusual formulation “which he had not commanded them,” instead of ”which He had forbidden them,” is that on occasion, in exceptional circumstances, G–d does permit something which is ordinarily prohibited. The Torah underlines that this was not such an occasion. An example of such an exception would be what Elijah did on Mount Carmel in his confrontation with the 400 hundred priests of the Baal. (Kings I 18). He used a private altar something which was strictly forbidden since the Temple had been erected. We also find a verse in Jeremiah 7,31, where the prophet uses this expression as having been used by G–d. In that example the prophet chides the people for sacrificing their children to G–d saying that this had never occurred for G–d to have them do. (Compare Talmud, tractate Taanit, folio 4 on that subject)
Sforno
This is why they offered it in the sanctuary, i.e. 'לפני ה, on the golden altar. The Torah had stipulated that no foreign incense [nor other unauthorised offerings. Ed.] was to be offered on that altar (Exodus 30,9). Even assuming that the golden altar would qualify for additional incense offerings when a specific command to do so would be issued, the sons of Aaron sinned by doing this now and not having consulted with their mentors. This is why the Torah stresses
Rav Hirsch
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יקטיר המזבחה SHALL HE CAUSE TO ASCEND IN FUMES ON THE ALTAR — i. e. on the outer altar, for if you say that it was burnt on the inner altar you are wrong, for it is written (Exodus 30:9) "Ye shall not bring up strange incense thereon, (i. e. on the inner altar) nor burnt offering, nor oblation".