Final answer:
Rulemaking typically begins with the creation, amendment, or repeal of statutes, which are public laws affecting the general population.
Step-by-step explanation:
Rulemaking usually begins with Congressional action by creating, amending, or repealing statutes. Statutes, also known as public laws, are policies enacted by Congress and the president that affect the public at large, as opposed to private laws which are applicable to individual or specific entities.
Unlike executive orders, which are directives to executive branch administrators on how to implement legislation and which can bypass Congress while still having the force of law, statutes require formal legislative processes to be created, amended, or repealed.