diff --git a/modules/congestion_controller/goog_cc/goog_cc_network_control.cc b/modules/congestion_controller/goog_cc/goog_cc_network_control.cc
index af8594d21e..c5466f7a43 100644
--- a/modules/congestion_controller/goog_cc/goog_cc_network_control.cc
+++ b/modules/congestion_controller/goog_cc/goog_cc_network_control.cc
@@ -633,6 +633,8 @@ void GoogCcNetworkController::MaybeTriggerOnNetworkChanged(
 }
 
 PacerConfig GoogCcNetworkController::GetPacingRates(Timestamp at_time) const {
+  // Pacing rate is based on target rate before congestion window pushback,
+  // because we don't want to build queues in the pacer when pushback occurs.
   DataRate pacing_rate =
       std::max(min_pacing_rate_, last_raw_target_rate_) * pacing_factor_;
   DataRate padding_rate =