Lon Fuller's The Morality of Law (1964; revised 1969) already splits "there is a published rule" from "the rule does any work." He lists eight success conditions for subjecting human conduct to the governance of rules: generality, publicity, prospectivity, clarity, non-contradiction, possibility of compliance, relative constancy, and congruence between official action and the declared rule. The last one is the officials actually doing what the published text says. In the King Rex story, the eighth failure is that Rex writes decent rules and his judges and police ignore them.
The essay's chain — text, then interpretation, incentives, capacity, enforcement, feedback — is mostly that eighth condition plus staff. Fuller also has the sixth: do not command what cannot be done. A 14-day access rule in a system with no slots fails both. The interesting disagreement is not whether promulgation delivers. It is what you call the object when it fails. Fuller thought a flagrant miss meant you did not have a legal system. The essay still calls it law, and says you scored the wrong thing.
Competing account of what the missed statute is.
H.L.A. Hart, The Concept of Law (1961): a primary rule is law if officials accept the secondary rules that pick it out. "Open texture" is his name for the fuzzy edge of a word, the penumbra. The core can be clear and still be badly administered. Hart's fight with the American Realists was exactly the claim that law is only a prediction of what officials will do. He thought that confused the existence of a rule with its efficacy.
Oliver Wendell Holmes, "The Path of the Law," 10 Harvard Law Review 457 (1897): "The prophecies of what the courts will do in fact, and nothing more pretentious, are what I mean by the law." Roscoe Pound, "Law in Books and Law in Action," 44 American Law Review 12 (1910), is the same cut as a slogan: the rules that purport to govern versus the ones that in fact govern.
They come apart on the 14-day access rule. Hart: still law; officials still cite it; the miss is efficacy. Fuller, if the miss is flagrant: it has stopped doing the job that makes something law. Holmes: the law is the 16-month practice, and the 14-day text is a prophecy that keeps failing. Discriminator: does a court or a supervisor still treat the 14-day provision as a binding duty, or has the working rule become the queue? If the first, the essay is Hart plus an evaluation slogan — don't score delivery by the books. If the second, the title is closer to Holmes than the essay admits, and "add a runtime" is a request to write a different law.