It is probably a fact that not much changes from the formal consultative document, but one has to know how the formal consultative document itself is compiled. In many cases, there is an informal pre-consultation with industry bodies and/or the various HSE committees such as CONIAC etc to sound out the so called red lines etc and what options to include. Last , but not least, if the consultation is essentially about transposing an EU Directive, there in not much or rather any room for manoeuvre, except the content of the AcOP and Guidance material. The response from a professional body is likely to carry more weight than any individual in their own professional capacity. My personal view is that few of us take the time to robustly engage in the consultation, not only by responding to the yes/no questions, but supplementing them with convincing rationale and backed by compelling evidence ( i.e the evidence is not anecdotal) There is no doubt that ultimately, the top level policy, including regulatory, is "directed" by the government of the day.