What is confusing to people is that they do not know what to do on that page. There are hundreds of tags on my site classified as “Public View”. If they click on the “Tags” page via the dropdown menu, they will see the hundreds of tags. The same number of tags available to them when they create a topic are not overwhelming since they are never visible in such numbers when accessed via the topic creation window/process.
I would just love to control who sees the Tags page. I do not understand why normal users should be able to access it, and it was a user testing the forum (we are still in the test phase) who complained about the confusing page.