The average American has neither the time nor the inclination to read through hundreds of pages an agency has posted describing a proposed rule. To make the rule more accessible to nonlawyers, it would be helpful if a one- or two-page summary of the rule could be posted highlighting questions the agency needs answered.
I also found the search function on the site was difficult to use if you didn't happen to know the docket number of the rule. Another more basic concern I have is about the general lack of awareness that Regulations.gov even exists. Many citizens likely do not know that they are allowed and encouraged to weigh in on the rulemaking process.