This is so basic to the regulatory public comment process that it's hard to find a simple, clear citation, but this one might help:

https://www.regulations.gov/docs/Tips_For_Submitting_Effecti...

Key quotes:

> The comment process is not a vote – one well supported comment is often more influential than a thousand form letters

> The comment process is not a vote. The government is attempting to formulate the best policy, so when crafting a comment it is important that you adequately explain the reasoning behind your position.

> Form Letters: Organizations often encourage their members to submit form letters designed to address issues common to their membership. Organizations including industry associations, labor unions, and conservation groups sometimes use form letters to voice their opposition or support of a proposed rulemaking. Many in the public mistakenly believe that their submitted form letter constitutes a “vote” regarding the issues concerning them. Although public support or opposition may help guide important public policies, agencies make determinations for a proposed action based on sound reasoning and scientific evidence rather than a majority of votes. A single, well-supported comment may carry more weight than a thousand form letters.