Suppose absolutely every adult human fully accepts rules forbidding (for example) physical attacks on the innocent, stealing, promise breaking, and lying. Then presumably there would be little or no need for rules about punishment. Without need for rules about punishment, society would get little or no benefit from such rules. But there is a cost associated with each rule included in a code. So there is a cost associated with the inclusion of any rule about punishment. Because of this combination of cost with no benefit, rules about punishment would not be endorsed by the form of rule-consequentialism immediately above.