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Have you ever driven in heavy fog? Standard headlights decrease your visibility in heavy fog- the suspended water droplets diffuse the light and just reflect a lot of the light back at you. You end up just illuminating the the fog instead of the road. Fog lights are low to illuminate the road surface so you can see where you are going. They are more focused and lower output to increase your visibility. It's counter-intuitive but drive in heavy fog just once and it will all make sense.
is there anything special about fog lights or are they just bright lights mounted low?