The controller has to monitor the voltage that is to be regulated. In the general case you're looking at stepping down from a higher transmission voltage to a lower voltage closer to the load. In that case you don't particularly care what the voltage is on the transmission side, but you do care what the voltage is on the load side. If the tap changer doesn't affect the voltage on the transmission side, you won't know what step it should be on, but it will always impact the load side voltage and you can tell what it needs to do.