The notice-and-comment process is designed to allow agencies to learn from public comments and to make appropriate changes in the final rule based on the comments. Sometimes, however, the result is that the final rule is significantly different from the proposed rule.
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.