I appreciate your intent to roll your on, but I instead suggest to use Text::ParseWords, it's part of Perl standard distribution. You can learn the logic from there, or from other module suggested by other monks in this thread.

#!/usr/bin/perl
use strict;
use warnings;
use Text::ParseWords;

while (<DATA>) {
    chomp;
    my @parts = parse_line(',', 0, $_);
    print join(' ', map { "[$_]" } @parts), "\n";
}

__DATA__
Submitted,"696,028","50,946","810,590","836,505","13,923,241","13,776,
+443","14,179,619","14,614,558","14,704,885","14,634,911","15,055,774"
+,"15,127,534","14,458,899","14,403,378","14,566,425","14,644,406","14
+,524,069"
Expired,245,275,273,248,240,295,353,316,371,398,387,352,310,288,405,27
+4,270
Less in,90.12%,90.49%,90.04%,89.55%,90.09%,90.63%,90.37%,90.48%,90.73%
+,90.59%,90.83%,90.40%,88.82%,90.71%,90.72%,90.69%,91.04%
[download]

Output:

[Submitted] [696,028] [50,946] [810,590] [836,505] [13,923,241] [13,77
+6,443] [14,179,619] [14,614,558] [14,704,885] [14,634,911] [15,055,77
+4] [15,127,534] [14,458,899] [14,403,378] [14,566,425] [14,644,406] [
+14,524,069]
[Expired] [245] [275] [273] [248] [240] [295] [353] [316] [371] [398] 
+[387] [352] [310] [288] [405] [274] [270]
[Less in] [90.12%] [90.49%] [90.04%] [89.55%] [90.09%] [90.63%] [90.37
+%] [90.48%] [90.73%] [90.59%] [90.83%] [90.40%] [88.82%] [90.71%] [90
+.72%] [90.69%] [91.04%]
[download]

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