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I have a unique perspective on this as a former federal rulemaker. One thing you should know is that when it comes to rulemaking, the FAA isn't an ordinary rulemaker--they do the most of it and they're the best in the business. When I went to my intro to rule making classes, the FAA always rolled deep.

If you want a change and you want to make sure the right people see your request, I suggest you start here:

https://www.transportation.gov/regulations/petitions

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As a student pilot, I got confused by a sign in the aeronautical charts, and wrote to the faa.

I got to present in front of the aeronautical charting group, they discussed, and took up my change. It was a surreal experience. The level of depth, care, and just breadth of considerations to flip every possible stone to make flying infinitessimally safer was truly awe inspiring. The fact that me, a at-the-time-not-yet-even private pilot, was heard and taken super seriously, was equally amazing. Fully agree -- these people are the best in the biz.

Why doesn't the FAA usually implement the changes the NTSB raises after learning from crashes?

They do when appropriate after considering all concerns. The NTSB is solely concerned with safety. The best rulemaking is not literally safety-first or nothing would actually get done.

See: Nuclear power for an example of this.

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