The FCC already has its orders. The 'comments' thing is just a pacification measure.
I'm guess it's more akin to "parallel construction" whereby if the comments provide sufficient cover for your existing orders, you can claim that it was a mandate of the constituency, and if not, then you have to do extra work to reframe it so that it is.
Still wondering why we can't have tax id used to authenticate messaging for such comment sites. I mean, like that's a guaranteed unique identifier, non? Its not like you're not putting your name/address on the comment anyway are you?