Judges are like umpires
Umpires don't make the rules; they apply them. The role of an umpire and a judge is critical. They make sure everybody plays by the rules. But it is a limited role. Nobody ever went to a ball game to see the umpire... On the one hand this may seem like technical arcanum, but note that we all often pretend this point in our discussions and comments on Terra Nova and elsewhere. It is how most of us conceptualize a simulation. We talk to the illusion of a world with many concurrent activities and a speak least metaphorically, to the agencies that can live in such places (e.g. of Non-Player-Characters and Player-Characters interacting with shared world state).