How can I highlight Government PDF documents?

The US government publishes Federal Register notices in pdf format.  Here is an example of one http://www.gpo.gov/fdsys/pkg/FR-2011-07-11/pdf/2011-17190.pdf.  I would like to add comments, highlight text, and maybe even insert and delete pages.  However, the government recently added some sort of security feature that prevents this from happening.  Can somebody explain what type of security setting this document has, and can it be deleted.  It appears to be some sort of certification of a digital signature.

I find it unlikely that if you have a Federal Register announcement, and print it on your personal hard drive as a PDF, and highlight some sentences, so you can personally find the sentences again later - that the federal government would go after you ("in hot water.")   Can you actually imagine someone in front of a federal judge and facing fines or prison because he did this?  It would be another thing to alter and fake the document and give it to people - saying that "X" is legal when the original regulation said "X" is illegal - but that is not remotely what Kent12317 is talking about.

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