---
name: public-comment-writer
description: |
  Teaches users to write structured public comments for local government proceedings, regulatory proposals, and public hearings. Covers the IPAR structure (Identify, Position, Argue, Request), formatting for different submission types, and strategies for making comments more persuasive and likely to be considered.
  Use when the user wants to submit a public comment to a government body, needs to write testimony for a public hearing, or wants to respond to a proposed regulation or policy change.
  Do NOT use for writing political campaign materials, drafting legislation, legal briefs, or lobbying communications that require disclosure.
license: Apache-2.0
metadata:
  author: foundry-skills
  version: "1.0.0"
  tags: "civic-engagement writing guide template"
  category: "legal-civic"
  subcategory: "civic-engagement"
  depends: ""
  disclaimer: "not-legal-advice"
  difficulty: "beginner"
---
# Public Comment Writer

> **Disclaimer:** This skill provides general civic literacy and educational information to help you understand public participation processes. It does NOT constitute legal advice, represent you in any legal matter, or create an attorney-client relationship. Procedural rules vary significantly by jurisdiction and agency, and change over time. Consult the specific agency's published rules or a qualified attorney for advice on formal proceedings affecting your legal rights.

---

## When to Use

**Use this skill when:**
- The user wants to submit a written comment on a proposed local ordinance, zoning variance, conditional use permit, general plan amendment, or subdivision approval
- The user wants to prepare oral or written testimony for a city council, planning commission, school board, water district board, air quality management district, or similar special district hearing
- The user wants to respond to a state or federal agency's Notice of Proposed Rulemaking (NPRM) through a formal notice-and-comment period under the Administrative Procedure Act or its state equivalents
- The user wants to comment on a draft Environmental Impact Report (EIR), Environmental Impact Statement (EIS), Mitigated Negative Declaration (MND), or other CEQA/NEPA environmental review document
- The user wants to comment on a proposed rate increase before a public utility commission, a transit agency fare change, or a municipal budget hearing
- The user wants to respond to a conditional use permit or variance application from a neighboring property owner in a local land use proceeding
- The user wants to make an existing draft comment stronger, more specific, more persuasive, or better targeted to the decision-making criteria the body is legally required to apply

**Do NOT use when:**
- The user wants to draft political campaign materials, candidate endorsements, or election-related advocacy content -- use a political writing skill
- The user wants to draft actual proposed legislation, bill language, or statutory text -- use a legislative drafting skill
- The user needs to write a legal brief, motion, or court filing for a contested case proceeding -- refer to an attorney
- The user wants to prepare lobbying communications directed at legislators or executive officials that may require registration or disclosure under HLOGA, the Lobbying Disclosure Act, or state equivalents -- consult a government relations attorney
- The user wants guidance on what position to take -- this skill teaches structure and persuasion; position selection is the user's own judgment
- The user wants to write a petition signature campaign or form letter drive -- those are mass-participation tools with different strategic logic than individual substantive comments
- The user is involved in a quasi-judicial proceeding where they have party status and procedural rights -- refer to an attorney immediately, because statements made in the record can affect legal rights on appeal

---

## Process

### Step 1: Gather Essential Context Before Writing

Ask the user these specific questions before drafting anything. Do not skip this step -- the answers determine format, length, evidence requirements, and deadlines.

- **What body is accepting comments?** City council and planning commissions operate under local municipal codes. State agencies operate under the state APA. Federal agencies operate under 5 U.S.C. § 553 (the federal APA). Environmental review comments operate under CEQA (California), NEPA (federal), or a state analog. Each has different procedural rules.
- **What is the exact name and reference number of the proposal?** Docket numbers (federal), file numbers (local), project numbers, ordinance numbers, and rule numbers ensure the comment is correctly filed and indexed. Comments without proper attribution may not enter the official record.
- **What is the comment submission deadline and time?** Federal comment periods are typically 30-60 days from Federal Register publication. Many state and local comment periods are shorter -- sometimes as little as 10 days for a noticed hearing. Late comments may be excluded from the record entirely.
- **What is the submission format and channel?** Options include regulations.gov (federal), an agency's own online portal, email to a specific clerk or docket address, U.S. mail, hand delivery to the clerk's office, oral testimony at a noticed public hearing, or combination. Ask if there are page limits, word limits, file format requirements, or attachment restrictions.
- **Is this a legislative/policy proceeding or a quasi-judicial proceeding?** Legislative proceedings (adopting a general plan, setting policy) give wide latitude to evidence and argument. Quasi-judicial proceedings (granting a variance, approving a conditional use permit) require the record to contain substantial evidence supporting or contradicting specific findings the agency is legally required to make. This distinction is critical -- quasi-judicial comments must speak to the legal findings, not just general preferences.
- **What is the user's role and standing?** Individual resident, affected property owner, representative of a nonprofit or business, licensed professional with relevant credentials, parent of a student, patient in the affected area, etc. Standing language matters: it establishes why the comment deserves weight and, in some proceedings, who has the right to appeal.
- **What is the user's position and core concern?** Support, oppose, support with modifications, or request further study. What specific harm, benefit, or interest is driving the comment?
- **Does the user have any data, documents, or expert knowledge to offer?** Measurements, photographs, medical records, studies, professional credentials, citations to the agency's own documents. This transforms opinion into evidence.

---

### Step 2: Identify the Exact Legal and Procedural Standard the Decision-Maker Must Apply

This step separates average public comments from powerful ones. Decision-makers are not free to vote however they feel -- they are legally constrained by specific findings they must make. Comments that speak directly to those required findings are far more likely to influence the outcome and, critically, to preserve the commenter's rights if the matter is later appealed.

- **For local land use decisions (zoning, variances, conditional use permits):** The agency must make specific findings under the local municipal code. For a variance, the agency typically must find that: (1) strict application of the zoning creates an unnecessary hardship peculiar to the property; (2) the variance would not grant a special privilege; and (3) the variance is consistent with the general plan. Comment on each required finding. If the required hardship finding cannot be supported by the record, say so explicitly.
- **For general plan amendments and rezoning:** The agency must demonstrate consistency with state housing law (in California, this includes the Housing Element Law and RHNA obligations), the existing general plan, environmental review requirements, and often a set of public interest findings. Reference these by specific code section.
- **For CEQA/NEPA environmental review:** Comments must identify specific inadequacies in the document -- failure to analyze a significant impact, failure to consider feasible alternatives, inadequate mitigation measures. Vague objections ("we don't like this project") do not require a response from the lead agency. Specific technical objections ("the traffic analysis uses a 2015 base year when a 2023 traffic count is available") must be addressed.
- **For federal notice-and-comment rulemaking (APA § 553):** The agency must consider and respond to significant comments in the preamble to the final rule. A "significant comment" is one that raises a point that, if true, would require a change in the proposed rule. Comments that simply express disagreement without providing new data, legal analysis, or factual information are not legally required to receive individualized responses.
- **For school board hearings on curriculum, facilities, or policy:** The board typically operates under state education code and board bylaws. Comments at noticed hearings are usually limited to agenda items. Know what the specific agenda item is and address only that item.
- **For utility rate cases before public utility commissions:** Intervening parties have formal rights; public comment opportunities are more limited. Comments typically address affordability impacts, service quality, and consistency with the utility's approved service plan. Rate cases often have formal intervention deadlines separate from the general comment period.

Ask the user directly: "Do you know what specific findings or criteria the [body] is required to consider when making this decision?" If they do not know, help them locate the applicable code sections, permit findings, or agency guidance documents before drafting.

---

### Step 3: Apply the IPAR Structure -- With Discipline

IPAR (Identify, Position, Argue, Request) is not merely an organizational preference -- it reflects how decision-makers actually process public input. Use the following guidance for each component.

**I -- Identify the Issue and Establish Standing**
- First sentence: state the exact name and reference number of the proposal. Example: "I am writing regarding proposed Zoning Ordinance Amendment No. ZA-2024-0047, which would rezone approximately 2.3 acres at the northeast corner of Maple Avenue and 12th Street from R-1 Single-Family Residential to C-2 General Commercial."
- Second sentence: establish standing. Example: "I am a licensed civil engineer and a homeowner at [address], located 175 feet from the eastern boundary of the subject parcel, and I have resided in this neighborhood for 14 years."
- Include any relevant professional credentials if they are germane to the argument -- engineers, physicians, environmental scientists, traffic planners, and educators all carry epistemic authority that strengthens comment weight.
- If commenting on behalf of an organization, state the organization's name, its purpose, its membership count or constituency, and the fact that the board or leadership authorized the comment.

**P -- State Your Position in One Sentence**
- This must appear in the first paragraph -- not after two pages of background.
- Use unambiguous language: "I oppose," "I support," "I support the proposal if the following modifications are adopted," or "I request that the comment period be extended to allow adequate review."
- Do not say "I have concerns about" or "I have questions regarding" -- this is not a position. State the position.
- Decision-makers and their staff read hundreds of comments, often under time pressure. A buried position is a lost position.

**A -- Argue with Specific, Verifiable Evidence**
- Each argument should be its own clearly labeled paragraph or section.
- Use 2-4 arguments for most proceedings. More than 4 dilutes impact. Agencies and commissions are more likely to respond to three well-supported arguments than to eight thin ones.
- Types of evidence ranked by general persuasive weight in most proceedings:
  1. **The agency's own documents and data** -- the most powerful. If the agency's own traffic study, environmental document, or fiscal analysis contains data that supports your position, cite it with page and section numbers. The agency cannot dismiss its own record.
  2. **Independent professional studies and published research** -- cite author, title, publication, and year. Government-published studies (USDOT, EPA, HHS, Census Bureau) carry high credibility.
  3. **Quantified personal observation** -- not "there's a lot of traffic" but "I have counted vehicles at this intersection during the evening peak hour (5:00-6:00 PM, Monday through Thursday) for four weeks and recorded an average of 847 vehicles, exceeding the Level of Service C threshold of 720 vehicles per hour for a two-lane arterial."
  4. **Documented historical precedent** -- a similar project, similar rezoning, similar regulation in a nearby jurisdiction with documented outcomes.
  5. **Professional expert opinion** -- a letter from a licensed traffic engineer, an environmental consultant's memo, a physician's statement about health impacts. Attach as an exhibit and reference in the comment.
  6. **Personal narrative with specific detail** -- "On the morning of March 12, 2024, at approximately 7:45 AM, a delivery truck blocking the right lane of Elm Street caused a backup extending past 3rd Street for 22 minutes, preventing my child from reaching school before the bell." Specific dates, times, and measurable details transform anecdote into evidence.
- What to avoid:
  - Vague language: "this will destroy our neighborhood," "this is outrageous," "no one wants this"
  - Unattributed statistics: "studies show" without citation
  - Personal attacks on applicants, developers, or decision-makers
  - Irrelevant grievances about unrelated issues
  - ALL CAPS, excessive exclamation points, or emotionally inflammatory language -- these reduce credibility
  - Repetitive statements: saying the same thing five times does not make it five arguments

**R -- Request Specific, Legally Actionable Relief**
- Tell the body exactly what you want them to do. Vague requests ("please reconsider") give the decision-maker nothing to grant.
- Specific requests: "I request that the Commission deny the conditional use permit application for the reasons stated above." "I request that the final rule include a 180-day delayed effective date for small businesses with fewer than 50 employees." "I request that the lead agency prepare a full EIR rather than relying on a Mitigated Negative Declaration, given the unresolved issues identified in this comment."
- If you support with modifications, list each modification as a numbered item with enough specificity that a staff member could draft it: "Condition of Approval No. 3 should be revised to require a 6-foot solid masonry wall rather than the proposed 4-foot wood fence along the northern property boundary."
- When opposing, always include a fallback alternative: "In the alternative, if the Council is inclined to approve the application, I request that the following conditions be imposed: [list]." This demonstrates reasonableness and preserves your ability to influence the outcome even if the primary request is denied.

---

### Step 4: Format the Comment for the Specific Submission Type

**Written Letter or Email (Standard Format):**
- Header: your name and address, date, recipient (body name and address or email), subject line with full proposal reference
- Salutation: "Dear [Commission/Council/Board] Members" or "Dear [Clerk/Administrator] [Last Name]"
- Length: 1-2 pages for most local proceedings. For complex environmental or federal rulemaking comments, longer technical submissions are appropriate -- but organize with headers, numbered sections, and page numbers so staff can navigate them.
- Attachments: label each exhibit ("Exhibit A: Photograph of intersection, taken March 12, 2024"), reference each exhibit in the body, and list all exhibits at the end.
- Signature: name, title (if relevant), contact information, and a request to be notified of the decision.

**Online Portal Submission (regulations.gov and State Equivalents):**
- Many federal comment portals accept comments of unlimited length. Some local portals impose 2,000-5,000 character limits.
- If there is a character limit, prioritize: (1) the proposal reference, (2) your position, (3) your single strongest argument with specific evidence, (4) your specific request.
- For federal rulemaking, attach supporting documents (reports, studies, data) as separate files. Attached documents become part of the docket and receive the same consideration as the comment text.
- Copy your comment text before submitting -- portal submissions sometimes fail, and you need a record.
- Submit well before the deadline. High-traffic comment periods can cause portal slowdowns in the final hours.

**Oral Testimony at a Public Hearing:**
- Standard speaking time: 2-3 minutes at most local bodies (varies; confirm with the clerk before the meeting). Some bodies allow 1 minute; some up to 5.
- Spoken word rate at a comfortable, clear pace: approximately 130 words per minute. A 2-minute testimony should be approximately 250-260 words. A 3-minute testimony should be approximately 380-390 words. Time yourself.
- Structure: State your name and address (required for the record), state your position in the first sentence, give your one or two strongest arguments, make your specific request. Save nothing for a closing flourish -- use every second for substance.
- Deliver a written copy to the clerk for the record simultaneously with your oral testimony. In most jurisdictions, written copies submitted at the hearing enter the record verbatim; oral testimony is often only summarized in minutes.
- Speak to the dais (the decision-makers), not the audience. Maintain a measured pace. Bring numbered note cards rather than a multi-page script -- cards are easier to track under pressure.
- If you run over time and are cut off, your submitted written copy preserves the rest of your testimony.

**Hybrid (Written Comment + Oral Testimony at Same Proceeding):**
- These are not redundant -- they serve different functions. Written comments create a formal record. Oral testimony allows you to respond to what other speakers have said and to look decision-makers in the eye.
- Your oral testimony can be a compressed version of the written comment, or it can address a new development raised at the hearing (an applicant's last-minute revision, a staff report error identified that day).

---

### Step 5: Calibrate Tone, Length, and Strategic Emphasis

- **Tone:** Firm and specific, not angry. "The traffic study is inadequate because it does not account for cumulative trips from the adjacent apartment project approved in 2023" is more persuasive than "This traffic study is a joke." Decision-makers are more likely to act on comments that give them a record-supported reason to do so than on comments that make them feel attacked.
- **Length calibration by proceeding type:**
  - Local planning commission hearing: 1-2 pages written, 2-3 minutes oral
  - City council legislative hearing (policy, budget): 1-2 pages written, 2-3 minutes oral
  - State agency rulemaking comment: 2-10 pages depending on complexity
  - Federal notice-and-comment rulemaking: no length limit; length should match complexity. A major environmental rule may warrant 20-50 pages with technical appendices from a professional organization.
  - CEQA/NEPA comment on a complex project EIR: technical comments from engineers or scientists may run 10-30 pages with exhibits
- **Strategic emphasis:**
  - If you are the only commenter, your comment carries more weight individually -- be thorough.
  - If there are many commenters on the same side, avoid pure duplication. Coordinate with allies: different people address different issues. A physician addresses health impacts; an engineer addresses technical inadequacy; a nearby resident addresses quality of life.
  - If a decision is nearly predetermined (a legislative vote is clearly going one way), shift emphasis: your comment is now building the record for a potential legal challenge or future policy reversal, not persuading today's voters. Be precise about factual and legal inadequacies for that purpose.

---

### Step 6: Review Against Decision-Making Criteria Before Finalizing

Run the finished comment through this checklist:

- [ ] Does the first paragraph contain the full proposal reference and the user's position?
- [ ] Does each argument cite specific evidence -- a number, a date, a study, a document reference, a measurement?
- [ ] Does each argument speak to a criterion the decision-maker is legally required to consider?
- [ ] Is the requested action specific enough that a staff member could draft a motion based on it?
- [ ] Is the tone professional throughout?
- [ ] Is the length appropriate for the format?
- [ ] Are all referenced exhibits labeled and listed?
- [ ] Does the comment include the user's contact information and a request for decision notification?
- [ ] For oral testimony: Is it within the time limit when read aloud at a measured pace?
- [ ] Is a written copy ready to submit to the clerk if oral testimony will be given?

---

### Step 7: Advise on Submission Logistics and Follow-Up

- **Confirm the submission address or portal.** Many agencies have specific docket email addresses that differ from general contact addresses. Comments sent to the wrong address may not enter the record.
- **Request a confirmation.** For email submissions, request a read receipt or reply confirmation. For online portals, screenshot or print the confirmation page with the assigned comment number. For mail, use certified mail with return receipt if the deadline is close.
- **Follow up after submission.** Attend the hearing if possible, even if written comments were submitted. Decision-makers notice who shows up. If you cannot attend, ask a neighbor, colleague, or ally to attend and submit their own comment.
- **Monitor the response.** For federal rulemaking, the final rule's preamble must address significant comments. If your comment raised a substantive point and the final rule ignores it, that may be a basis for administrative challenge. Keep copies of everything.
- **Appeal rights.** In quasi-judicial local land use proceedings, the right to appeal is often limited to parties who appeared in the proceeding and raised the specific issue being appealed. This is sometimes called "exhaustion of administrative remedies." If the user may want to appeal the decision, their comment must raise every issue they want to preserve. Advise the user to consult an attorney if they believe they may need to appeal.

---

### Step 8: Produce the Final Deliverables

Produce the following outputs based on the user's situation:
1. A complete written comment following the Output Format below
2. A condensed oral testimony script (if the user will attend a hearing), timed to the specific limit they confirmed
3. A brief submission checklist with the specific deadline, submission address, and formatting requirements the user identified

---

## Output Format

```
═══════════════════════════════════════════════════════════
PUBLIC COMMENT -- [Proposal Reference Number and Name]
═══════════════════════════════════════════════════════════

TO:    [Full name of body: e.g., City of Springfield Planning Commission]
FROM:  [Full name], [Title/Role if relevant]
       [Street address, City, State, ZIP]
       [Email address] | [Phone number]
DATE:  [Full date: e.g., October 15, 2024]
RE:    [Full proposal title and reference number]
       [Hearing date or comment period deadline]

───────────────────────────────────────────────────────────
WRITTEN COMMENT
───────────────────────────────────────────────────────────

Dear [Commission/Council/Board] Members,

[IDENTIFY]
I am writing regarding [full proposal name and number], [scheduled for hearing on / with comments due by] [date]. [One sentence describing the proposal's key action -- what it would do.] I am a [role: resident/property owner/licensed professional/organization representative] [connection: living/working/operating] at [address or location], [standing: located X feet/miles from the project site / directly affected by the proposed regulation / representing an organization whose members include...].

[POSITION]
I [support / oppose / support with the following modifications / request additional study of] this proposal.

[ARGUMENT 1: ADDRESS REQUIRED FINDING OR PRIMARY LEGAL CRITERION]
[Descriptive heading tied to the legal criterion, e.g., "Traffic Safety -- Failure to Meet Level of Service Standard C"]:
[Specific, evidence-based argument. Include: measurement or data point, source or citation, connection to the legal finding. Approximately 3-5 sentences.]

[ARGUMENT 2: ADDRESS SECOND FINDING OR STRONGEST FACTUAL CONCERN]
[Descriptive heading, e.g., "Inconsistency with General Plan Land Use Designation"]:
[Specific, evidence-based argument. Include: document reference with section number, specific language from the relevant plan or standard, explanation of conflict. Approximately 3-5 sentences.]

[ARGUMENT 3: ADDRESS THIRD FINDING OR SECONDARY FACTUAL CONCERN]
[Descriptive heading, e.g., "Inadequate Analysis of Noise and Vibration Impacts"]:
[Specific, evidence-based argument. Include: reference to the agency's own document where the analysis is deficient, identification of the specific standard that was not met, and what additional analysis is needed. Approximately 3-5 sentences.]

[OPTIONAL ACKNOWLEDGMENT OF COUNTERARGUMENT]
[One paragraph acknowledging the strongest argument on the other side and explaining why it does not outweigh your position. This demonstrates good faith and increases credibility with decision-makers.]

[REQUEST]
For the foregoing reasons, I respectfully request that the [body]:
1. [Primary request -- specific action: e.g., "Deny Conditional Use Permit Application No. CUP-2024-031"]
2. [Fallback or alternative request, if any: e.g., "In the alternative, if the Commission is inclined to approve the application, impose the following conditions: (a)... (b)..."]
3. [Procedural request, if any: e.g., "Continue the hearing to allow submission of a supplemental traffic study"]

I request that I be notified in writing of the Commission's decision on this matter and of any right to appeal.

Respectfully submitted,

[Full name]
[Title, if relevant]
[Organization, if applicable]
[Address]
[Contact information]

[EXHIBITS, if any]
Exhibit A: [Description, e.g., "Photograph of intersection, Elm St. and 5th Ave., taken October 14, 2024 at 5:30 PM, depicting traffic queue"]
Exhibit B: [Description, e.g., "Institute of Transportation Engineers, Trip Generation Manual, 11th Edition, Table 944 (Gas Station/Service Station)"]
Exhibit C: [Description, e.g., "City of Springfield Comprehensive Plan 2035, Section 4.3, Land Use Designation Map, adopted March 2021"]

═══════════════════════════════════════════════════════════
ORAL TESTIMONY SCRIPT -- [X]-MINUTE VERSION
Approximate word count: [X] words | Spoken pace: ~130 wpm
═══════════════════════════════════════════════════════════

"Good [evening/morning/afternoon], [Commission/Council/Board] Members.

My name is [full name]. I [live/work/represent] at [address/organization], [X distance/connection] from [project site or affected area]. I am here to [support/oppose] [proposal name and number].

[One sentence restating position. One sentence: your strongest argument with the single most compelling data point or fact.]

[Second argument in 2-3 sentences with a specific piece of evidence.]

[Optional: One sentence acknowledging the other side before pivoting to your conclusion.]

I respectfully ask that you [specific action].

[Optional: 'I have submitted a written comment for the record, which includes additional detail and supporting exhibits.']

Thank you for your time and your service to our community."

═══════════════════════════════════════════════════════════
SUBMISSION CHECKLIST
═══════════════════════════════════════════════════════════

[ ] Proposal reference number included in comment header
[ ] Submission deadline: [date and time]
[ ] Submission method: [email address / portal URL / physical address / clerk's office]
[ ] File format requirements: [PDF / Word / plain text / character limit: X]
[ ] Confirmation of receipt requested
[ ] Exhibits labeled, attached, and referenced in comment body
[ ] Written copy prepared to hand to clerk at hearing (if attending)
[ ] Oral testimony timed to [X]-minute limit
[ ] Copy of full submission saved to your records
[ ] Contact information included for decision notification
```

---

## Rules

1. **Never advise the user what position to take.** Provide the structural framework, explain the evidence requirements, and ask clarifying questions. The user's position is the user's decision. The AI's role is to help them express that position as effectively as possible.

2. **Always identify the applicable decision-making standard before drafting.** Comments untethered to required findings are weak advocacy. Before producing any draft, identify whether this is a legislative, quasi-judicial, or rulemaking proceeding and what specific legal criteria the body must apply. A comment that speaks to the required findings is structurally more powerful than one that expresses general preference.

3. **Always include the specific proposal reference number in the comment header.** Docket numbers, permit application numbers, ordinance numbers, and agenda item numbers are how agencies index comments in the official record. A comment without a proper reference may be filed under a miscellaneous catch-all or lost entirely. This is non-negotiable.

4. **Distinguish quasi-judicial from legislative proceedings.** In quasi-judicial proceedings (variance approvals, conditional use permits, development agreement approvals), the record matters for appeal. A commenter who fails to raise an issue in the administrative record typically cannot raise it on appeal -- this is the exhaustion doctrine. Advise users in quasi-judicial proceedings to raise every issue they may want to preserve, and to consult an attorney if they contemplate an appeal.

5. **Never include personal attacks, threats, or contemptuous language directed at decision-makers, applicants, or other commenters.** Beyond being counterproductive, such content can cause a comment to be stricken from the record in some jurisdictions and may expose the commenter to liability. Professional language is not just courtesy -- it is a tactical requirement.

6. **Vague objections in CEQA/NEPA comments are not adequate.** Environmental review comments must identify specific deficiencies in the analysis, specific impacts not addressed, specific alternatives not considered, or specific mitigation measures that are inadequate or infeasible. Under CEQA Guidelines Section 15204, reviewers should be as specific as possible. A comment that says only "this project will harm the environment" does not require a specific response from the lead agency. A comment that says "the Air Quality Analysis in Section 4.2 of the Draft EIR uses the URBEMIS 2007 model, which has been superseded by CalEEMod 2022 and produces significantly lower emissions estimates" requires a specific response.

7. **Always produce a condensed oral testimony version if the user indicates they will attend a hearing.** The written comment and oral testimony serve different functions and have different audiences. The written comment creates a durable record. The oral testimony creates a human impression in real time. Both should be prepared.

8. **Respect the submission format requirements strictly.** If a portal has a 5,000-character limit, do not produce a 10,000-character comment and tell the user to paste it in. Produce a version that fits. If an agency requires PDF with page numbers, say so. If an agency requires plain text with no attachments, say so. Format non-compliance can result in comments being disqualified.

9. **When opposing, always include an alternative or fallback position.** Pure opposition without an alternative is weaker advocacy. Decision-makers often want to do something with a proposal -- giving them a modified path forward gives them a way to honor your comment while still acting. An "oppose and suggest" structure also signals good faith, which increases credibility on the other arguments.

10. **For federal rulemaking comments specifically: mass-form comments carry almost no weight.** Under the federal APA, agencies are required to respond to "significant" comments that raise substantive points. Courts have held that 100,000 identical form-letter comments may receive one collective response. A single comment that provides specific data, identifies a flaw in the agency's cost-benefit analysis, or cites a study the agency did not consider is more likely to influence the final rule than any number of identical form submissions. Always encourage individualization.

11. **Always advise the user to keep a complete copy of the submission.** This includes the text, all exhibits, the date of submission, the submission method, and any confirmation number or receipt. In proceedings where the record is later contested, having proof of what was submitted and when is essential.

12. **Never draft content that characterizes a position as community consensus without verification.** "The entire neighborhood opposes this" is a factual claim. Unless the user can document it (a petition with names and addresses, a neighborhood association vote, survey results), do not include such language. Unsupported factual claims in a public record undermine credibility and can be challenged.

---

## Edge Cases

### Case 1: Federal Notice-and-Comment Rulemaking (APA § 553)

Federal agencies publish proposed rules in the Federal Register with a docket number (e.g., EPA-HQ-OAR-2024-0001). Comments are typically submitted through regulations.gov. The standard comment period is 30-60 days, though significant rules may have 60-90 day periods. Major rules affecting many stakeholders sometimes receive extensions upon request.

Key differences from local proceedings:
- Comments must reference the specific docket number and, for technical rules, the specific section or paragraph being addressed (e.g., "Proposed 40 CFR § 60.112b(a)(1)").
- The agency must publish a final rule that addresses all significant comments. If your comment raises a point that, if true, would require modifying the proposed rule, the agency must explain why it accepts or rejects that point in the preamble to the final rule.
- Cost-benefit analysis challenges are among the most effective comment types for major rules. If the agency's Regulatory Impact Analysis (RIA) uses flawed assumptions, outdated data, or ignores a category of costs or benefits, identifying this with specificity is high-value advocacy.
- Attachment of published studies, data, or professional analysis is strongly encouraged. The docket becomes a public record accessible to anyone.
- The D.C. Circuit and other federal courts have remanded agency rules for failure to respond to significant comments. A well-documented comment thus has potential legal teeth beyond the comment period itself.

### Case 2: CEQA/NEPA Environmental Review

Environmental review under CEQA (California) and NEPA (federal, triggered by federal nexus) has its own distinct comment logic. The comment period on a Draft EIR is typically 45 days under CEQA (30 days for a Negative Declaration or MND). NEPA draft EIS comment periods are typically 45 days, sometimes 60 days for complex projects.

The purpose of environmental review comments is to force the agency to analyze impacts it may have underestimated or overlooked and to consider alternatives and mitigations it may have rejected too quickly. Comments should:
- Identify the specific section of the document being critiqued (chapter, section, page number).
- Identify the specific legal standard not met (e.g., CEQA Guidelines § 15126.6 requires analysis of a "no project" alternative and a "reduced intensity" alternative -- if these are missing or inadequate, say so and cite the provision).
- Reference peer-reviewed studies, agency guidelines (e.g., FHWA noise standards, EPA air quality thresholds), or technical manuals that establish a standard the document failed to apply.
- Propose specific additional mitigation measures or alternatives, since the agency is required to respond to proposed mitigations.

In CEQA proceedings, comments that are not submitted during the comment period on the Draft EIR generally cannot be raised in a subsequent legal challenge. The California Supreme Court has emphasized this exhaustion requirement. This makes the comment period the critical moment for preservation of issues.

### Case 3: User Has Missed the Formal Comment Deadline

This situation requires honesty about the procedural consequences. For federal rulemaking under the APA, comments submitted after the official deadline are not part of the required record and the agency is not obligated to respond to them. They may be accepted as late comments at the agency's discretion, but this cannot be relied upon.

For local quasi-judicial proceedings, the comment period typically ends at the close of the hearing. If the hearing has not yet occurred, written comments may still be submitted (often to the clerk by a specified date before the hearing, or in person at the hearing itself).

Advise the user to:
1. Contact the specific agency's clerk or docket office immediately to ask whether late submissions will be accepted and under what conditions.
2. If attending a hearing is possible, prepare oral testimony -- most local hearings allow public comment at the hearing itself regardless of whether written comments were timely.
3. If the matter affects legal rights, consult an attorney immediately about whether the deadline can be challenged and whether participation can be preserved through other procedural mechanisms.
4. For CEQA/NEPA: if the comment period on a Draft EIR has closed, the user may have lost the ability to raise issues in a legal challenge. An attorney should be consulted if the project may be legally challenged.

### Case 4: Commenting on Behalf of a Nonprofit, Business, or Other Organization

The comment should establish four things at the outset: (1) the organization's name and legal status (501(c)(3), LLC, homeowners association, labor union, trade association); (2) the organization's mission or purpose and why this proceeding falls within that mission; (3) the organization's membership, constituency, or geographic area of interest; and (4) that the comment has been authorized by appropriate leadership (board vote, executive director, authorized representative).

Organizational comments often carry more weight than individual comments because they represent aggregated interests and often have access to professional expertise, data, or resources that individual commenters do not.

Critical caution: 501(c)(3) public charities may not engage in substantial legislative lobbying and may not participate in partisan political activity. Commenting on administrative proceedings (permit applications, regulatory rulemakings) is generally permissible, but comments that cross into advocacy on legislation or electioneering may create tax compliance issues. When in doubt, advise the user to consult the organization's legal counsel.

### Case 5: The Decision Appears to Be Predetermined -- Is There Any Point?

This is a common and legitimate concern. Decision-makers sometimes have clearly signaled their intentions before the public comment period closes. Address this directly:

The answer depends on the user's goals. If the goal is to change tonight's vote, a predetermined outcome is discouraging. But public comments serve purposes beyond the immediate vote:
- **Building the administrative record for appeal:** In quasi-judicial proceedings, the record is what a court reviews. If the decision was legally flawed, the record that supports that challenge must exist. A detailed, legally precise comment creates that record.
- **Influencing conditions of approval:** Even when the core approval is predetermined, specific requests for conditions (hours of operation, buffer requirements, monitoring programs, mitigation measures) are often negotiable and responsive to well-documented requests.
- **Establishing a political record:** Decision-makers who vote against a documented record of community concern face accountability at the ballot box. A public record of opposition has lasting political value beyond the immediate proceeding.
- **Preserving future options:** A strong record may support future regulatory actions, legislative changes, or community organizing based on documented impacts.

Explain these purposes to the user and let them decide whether the comment is worth their effort given their actual goals.

### Case 6: The User Wants to Comment in Support, Not Opposition

Support comments are often neglected but are strategically important. Applicants, developers, and agencies are sometimes surprised by opposition and need documented support in the record to counter it. A well-structured support comment should:
- Explain specifically why the proposal meets the required findings (using the same legal criteria an opponent would challenge).
- Provide affirmative evidence of benefit: economic data, public health research, documented need the proposal addresses.
- Respond directly to specific objections raised by opponents -- if the comment period is open, you can often see what opponents are saying and address it.
- Request specific conditions or modifications that would make the proposal even better or more likely to survive opposition (this shows engagement and gives decision-makers something to offer both sides).

Support without substance ("I think this is great") contributes less to the record than support with specificity ("The proposed bike lane on Oak Street is consistent with the city's Active Transportation Plan Section 3.4 and would connect two existing lane segments currently separated by a half-mile gap").

### Case 7: The User Is Not a Fluent English Writer

Public comment processes are legally open to all residents, including those who write in languages other than English. Advise the user:
- Many local agencies have translation services for written submissions or oral testimony. Contact the clerk's office in advance to request interpretation.
- Writing in a clear, simple style is more effective than attempting complex rhetorical constructions in a second language. The IPAR structure is inherently simple and transfers across languages.
- If the user has a family member, community organization, or advocate who can help with translation, that is worth pursuing. A comment should not go unsubmitted because of language barriers.
- Help the user draft the comment in the clearest possible language, avoiding idioms, complex subordinate clauses, and jargon. The goal is precision, not eloquence.

### Case 8: The User Wants to Comment on a School Board Decision

School board proceedings have specific features that differ from planning and regulatory proceedings:
- School boards are typically bound by state education codes and board-adopted policies rather than a zoning code or administrative procedure act.
- Agenda items at school board meetings are tightly controlled. Public comment is often limited to agenda items only; comment on non-agenda items may be permitted during a general public comment period but the board cannot act on it at that meeting.
- School board meetings often have very short speaking times -- sometimes 1 minute per speaker, with a cap on total public comment time.
- For curriculum decisions, special education program changes, school closures, or boundary changes, the legal standards the board must meet are set by state education code (e.g., in California, Education Code § 35160 et seq. for curriculum and § 48980 for parent rights notices).
- If the issue involves special education services, the Individuals with Disabilities Education Act (IDEA) and Section 504 of the Rehabilitation Act impose federal requirements that constrain what a school board may do. An IDEA-specific comment should reference the specific federal requirements and ask whether the proposed change is consistent with them.

---

## Example

**User Input:**
"My city is proposing to allow a large-format grocery store -- about 80,000 square feet -- in an area currently zoned neighborhood commercial, which limits buildings to 25,000 square feet. They'd need a zoning amendment and a conditional use permit. The site is on the corner of Harbor Boulevard and Lincoln Avenue, adjacent to a residential neighborhood. My concerns are: the traffic will be terrible (Harbor is already congested), the store will threaten the small grocery stores in the area, and the proposed 24/7 operating hours will hurt nearby residents with light and noise all night. I want to oppose this at the planning commission hearing next Thursday. I have 3 minutes to speak."

**Full Output:**

---

```
═══════════════════════════════════════════════════════════
PUBLIC COMMENT -- Zoning Amendment No. ZA-2024-0091 and
Conditional Use Permit Application No. CUP-2024-0044
Large-Format Grocery Store, Harbor Boulevard and Lincoln Avenue
═══════════════════════════════════════════════════════════

TO:    City of [City Name] Planning Commission
FROM:  [Your Full Name], Resident/Property Owner
       [Street Address, City, State, ZIP]
       [email@example.com] | [(555) 000-0000]
DATE:  [Date]
RE:    Zoning Amendment No. ZA-2024-0091 (Neighborhood Commercial
       Maximum Floor Area Ratio Amendment) and Conditional Use
       Permit Application No. CUP-2024-0044 (Large-Format Retail,
       80,000 sq. ft. Grocery, Harbor Blvd. and Lincoln Ave.)
       Planning Commission Hearing: [Date]

───────────────────────────────────────────────────────────
WRITTEN COMMENT
───────────────────────────────────────────────────────────

Dear Planning Commissioners,

[IDENTIFY]
I am writing regarding Zoning Amendment No. ZA-2024-0091 and 
Conditional Use Permit No. CUP-2024-0044, which together would 
allow construction of an approximately 80,000-square-foot grocery 
store at the corner of Harbor Boulevard and Lincoln Avenue -- 
more than three times the 25,000-square-foot maximum currently 
applicable to the NC (Neighborhood Commercial) zone. I am a 
resident of [address], located [X] feet from the project site, 
and I have lived in this neighborhood for [X] years.

[POSITION]
I oppose both the proposed zoning amendment and the conditional 
use permit application.

[ARGUMENT 1: TRAFFIC IMPACT -- FAILURE TO DEMONSTRATE 
ADEQUACY UNDER THE CITY'S LEVEL OF SERVICE STANDARD]
Traffic Impacts on Harbor Boulevard Exceed Acceptable Level of 
Service:
The applicant's Traffic Impact Analysis (TIA), dated [date], 
concludes that the project will generate 6,200 net new daily 
vehicle trips, including 485 PM peak-hour trips. However, the 
TIA's base year traffic counts at Harbor Boulevard and Lincoln 
Avenue were collected in October 2022 -- before the 312-unit 
apartment complex at [nearby address] opened in early 2024, 
which the city's own approval resolution estimated would add 
1,800 daily trips to Harbor Boulevard. The TIA therefore 
understates existing and cumulative traffic conditions at this 
intersection. According to the Institute of Transportation 
Engineers Trip Generation Manual (11th Ed., Land Use Code 
850), a grocery store of 80,000 square feet generates a median 
of 6.84 trips per 1,000 square feet in the AM peak hour -- a 
rate the applicant's TIA does not appear to apply. Using the 
ITE rate, AM peak-hour trips would be approximately 547, not 
the 312 stated in the TIA. The city's Municipal Code Section 
[X] requires Level of Service C or better at intersections 
adjacent to commercial projects. The TIA's own data shows 
Harbor/Lincoln operating at Level of Service D during the PM 
peak hour even without project trips. The Commission cannot 
make the required finding that traffic facilities will be 
adequate without an independent traffic study using current 
traffic counts.

[ARGUMENT 2: INCONSISTENCY WITH THE GENERAL PLAN AND ZONING 
CODE PURPOSE STATEMENT]
The Project Contradicts the Purpose and Intent of the 
Neighborhood Commercial Zone:
The city's Zoning Code Section [X] establishes the NC zone to 
"provide for small-scale retail and service uses that serve 
the daily needs of nearby residents, with a scale and 
character compatible with adjacent residential neighborhoods." 
The 25,000-square-foot maximum building size is not an 
arbitrary number -- it reflects the Planning Commission's 
2018 finding (Resolution No. [X]) that buildings above this 
threshold "generate regional-scale traffic and operational 
impacts inconsistent with the pedestrian-scaled character of 
the NC zone." Approving a zoning amendment to allow 80,000 
square feet at this location would be the functional equivalent 
of creating a new Regional Commercial designation at this 
intersection without the environmental review or community 
input that a general plan amendment would require. The 
General Plan Land Use Element (Policy LU-3.4) directs the 
city to "protect the viability of neighborhood-serving 
commercial areas by preventing the intrusion of regional-
scale commercial uses that would generate incompatible 
traffic and operational impacts." This project is 
incompatible with Policy LU-3.4.

[ARGUMENT 3: OPERATING HOURS -- NOISE AND LIGHT IMPACTS 
ON ADJACENT RESIDENTIAL PROPERTIES]
Proposed 24-Hour Operations Will Create Unmitigated Noise 
and Light Impacts on Adjacent Residents:
The project proposes 24-hour, 7-day operations, including 
overnight delivery and restocking activities. The applicant's 
Noise Assessment identifies projected loading dock noise 
levels of 72 dB(A) at the property line during overnight 
delivery operations (11:00 PM to 6:00 AM). The city's 
Noise Ordinance Section [X] establishes a nighttime exterior 
noise limit of 50 dB(A) for residential zones. The loading 
dock, as proposed, would generate noise 22 dB(A) above the 
applicable nighttime limit at the residential property line 
-- a difference audible as approximately four times louder 
than the permitted level. The Noise Assessment proposes a 
"solid masonry screen wall" as mitigation but does not 
specify its height, materials, or location with sufficient 
precision to evaluate whether it would achieve compliance. 
Similarly, the photometric plan submitted with the project 
shows parking lot lighting at 3.8 foot-candles at the 
residential property line during overnight hours; the city's 
lighting standards limit spill light to 0.1 foot-candles 
at a residential property line. These are not minor 
discrepancies -- they represent a 38-fold exceedance of 
the applicable light standard. The Commission cannot make 
the conditional use permit finding that the project "will 
not be detrimental to the health, safety, and welfare of 
the surrounding neighborhood" based on the current record.

[ACKNOWLEDGMENT OF COUNTERARGUMENT]
I recognize that this site has been vacant for several years 
and that the applicant's proposal would bring significant 
sales tax revenue and approximately 200 permanent jobs to the 
city. These are legitimate public benefits. However, the 
existence of economic benefits does not eliminate the legal 
obligation to make specific findings under the Zoning Code 
and General Plan, and those findings cannot be made on the 
current record given the inadequate traffic analysis, the 
zoning inconsistency, and the unresolved noise and light 
impacts. The right outcome is not denial of any commercial 
development, but rather a project designed and conditioned 
to actually comply with applicable standards.

[REQUEST]
For the foregoing reasons, I respectfully request that the 
Planning Commission:

1. Deny Conditional Use Permit No. CUP-2024-0044 on the 
   grounds that the required findings under Zoning Code 
   Section [X](B) cannot be made on the current record, 
   specifically the findings regarding traffic adequacy, 
   general plan consistency, and neighborhood compatibility.

2. Deny Zoning Amendment No. ZA-2024-0091 as inconsistent 
   with General Plan Policy LU-3.4 and the purpose and 
   intent of the NC zone.

3. In the alternative, if the Commission is inclined to 
   approve the project in some form, I request that the 
   following conditions be imposed at a minimum:
   (a) An independent traffic study using 2024 base year 
       counts, including cumulative trips from the 
       [nearby complex], be completed and reviewed by the 
       city's traffic engineer before any approval;
   (b) Operating hours be restricted to 6:00 AM to 
       11:00 PM, seven days per week, with all deliveries 
       and restocking confined to those hours;
   (c) Parking lot lighting be redesigned to comply with 
       the 0.1 foot-candle spill light limit at the 
       residential property line, with a photometric 
       study submitted for review; and
   (d) A noise monitoring program be required as a 
       condition of CUP approval, with the CUP subject 
       to revocation if nighttime noise levels at the 
       residential property line exceed 50 dB(A) on 
       two or more measured occasions within any 
       12-month period.

I respectfully request written notification of the 
Commission's decision and any appeal deadline.

Respectfully submitted,

[Your Full Name]
[Address]
[Contact Information]

EXHIBITS:
Exhibit A: City of [City] Zoning Code, Section [X], NC Zone 
           Purpose Statement and Development Standards 
           (downloaded from city website, [date])
Exhibit B: Planning Commission Resolution No. [X] (2018), 
           Findings Regarding NC Zone Maximum Building Size
Exhibit C: General Plan Land Use Element, Policy LU-3.4, 
           page [X] (adopted [year])
Exhibit D: Institute of Transportation Engineers, Trip 
           Generation Manual, 11th Edition, Land Use Code 
           850 (Supermarket), Table of Rates, page [X]
