This is nothing but an educated guess...
I don't think that Congress can modify the regulations, only pass them or reject them.
I imagine that if they reject them they will tell the FDA why though.
Again, this is just a guess.
After posting what I did, I'm thinking Congress is our best bet. They could put FDA more on defensive, especially if libertarian type of Pubs were to make this an issue of 'big government' and 'job killing/hurting small businesses.'
Us consumers don't seem to stand a chance to influence FDA on that end, and it would seem we are hoping for courts, after the fact, to helps us out. But Congress (just one or two key players) could be vocal, hopefully sooner than later, to help us in our fight and to potentially stand on a winning side, politically speaking.
If we divide up and just each get vocal with our own state representatives, that could work, but I'm thinking more along lines of targeting one to 5 at the most and letting them wield their power to 'change the narrative' that FDA currently seems to be in control of.
Would be very interesting to see a Pub taking up a political cause whereby science is front and center, and then having Dems (who, at the national level, have been vocally against eCigs) be the ones who are avoiding the scientific data to rally their base around political messages with nothing more to them than hot air.