Confused by what make package should do

The porters handbook says:

> Make sure that make package can be run as a normal user (that is, not
> as root)

However, the default `PREFIX` is /usr/local, and a non-root user cannot
install to this folder.

Adjusting the PREFIX kind of fixes it (partially) but not fully, so I
don't know if there's a problem with my port or what. Before I proceed
should `make package`, with no prefix adjustment work for non-root
users? Because I don't understand how it can.

Any comments appreciated, thanks!