Yes, one solution would be to give those actors the means to participate. The most important point is that the most open and inclusive consultations occur at the end of the regulatory process, during the consultation and comment period, when people have 30 or even 90 days to comment. At that stage, it's already a done deal.
So we need to enable people to participate before they get to this stage, which is quite difficult. Even the regulatory bodies can't know who will be affected by or interested in their draft regulations. In many cases, they'll rely on their family and friends; that is to say, the people who often participate. Those actors informally become privileged.
I unfortunately don't have a solution for you. We need to find a way to include these people earlier in the process. There has to be a greater diversity of stakeholders, bringing to the same table small businesses, citizens, non‑governmental organizations and citizens' groups to allow them to have a say before the decision is made.