The Obama Administration has launched an initiative to make the policymaking process more open and transparent, and has asked for comments from the public on how the rulemaking process in particular can be improved in these respects. Contents of this report: (1) Introduction; (2) Open Government and Rulemaking: The Rulemaking Process; Importance of the Pre-NPRM Period; (3) The Unified Agenda as a Possible Vehicle for Pre-NPRM Transparency and Public Participation; (4) Agencies¿ Use of Unified Agenda Before Proposed Rules Varied; (5) Discussion; and (6) Policy Options. Illustrations.