I kind of lost my train of thought writing pseudo-code and failed to emphasize the key point. The law does not require a complete specification of all implementation details in order to develop working "production code". The law is a system that supports incremental refinement on-the-fly. The legislature need only designate the appropriate rule-making agents, define the scope of their rule-making authority, designate an implementation timeframe, and define only a very limited incremental change of the status quo rules to be applied if the designated rule-making authorities should fail to generate a complete set of rules to implement the law within the designated timeframe.