The public comment phase of rulemaking can be incredibly complex and involve hundreds of person-hours to complete. That means successful projects must be well-coordinated and organized, which puts a heavy burden on project managers. Plus, managers often spend as much time reviewing important submissions as they do organizing and following up with the rest of the team. Managers risk getting overwhelmed by the extra work and responsibility in many cases.
As a writer of proposed rules, your words make a difference. Readers understand the details and intent of rules through these documents and respond accordingly. If your writing is easy for the public to understand, commenters are better equipped to address pivotal issues and provide useful feedback.