As legislative venues are increasingly stymied by gridlock, much policymaking responsibility has devolved to the U.S. states. This article analyzes informational inputs and participation by actors within the rulemaking context, focusing on the level of state rulemaking. Specifically, we explore the rulemaking process in Colorado and North Carolina in two environmental sectors. Using data from documents and in-depth interviews, this study finds that goals of deliberative and open regulatory processes are not met in the cases studied here, in part due to informal pre-hearing processes established by agencies which can be navigated most successfully by the regulated community.