What do you think the main purpose of issuing a law?
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A law is issued for maintaining order between the people of a country.
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One purpose of a law without a penalty is to establish and clarify proper conduct which is directed at a group of people (e.g. judges, law enforcement officers, civil servants, people who are civic minded) who see it as their business to follow and apply the law and do so out of a sense of duty.
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