NPRM is a catch all 'legal' phrase.
PROPOSED 'rule making' can be specific rules (which this one isn't), or a request for discussion of possible, but not yet decided on, changes.
Once the Commission decides what specific changes they are going to make (anyone think they never would have proposed 'delicensing' unless they are darn well determined to do just that, unless someone gives them a darn good REASON, not a whine that it will 'destroy GMRS'?), THEN they will put out another NPRM with specific changes (95.xxxx, thou shalt not use more than 2 watts output power, etc), and that will again be subject to comments, etc, like all other NPRM's.