literally,exhaust the development,but that wouldn't make any sense here.I think it means to not cut across or interfere with,i.e. the royal decree is already partially enshrined in a law and is independent of it whilst overlapping with the law of 1985.

This is more common workding in US and European legal documents. See the links cited.

IMO

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Note added at 1 hr 10 mins (2005-10-21 14:45:38 GMT)
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The Royal Decree is one application.
There are others.
alternative: does not exclude other applications

does not develop the law thoroughly/completely

Even though the DRAE does not register it, a common meaning of "agotar" in Spanish is to make/do something thoroughly/ completely, and is widely used in expressions such as "agotar el análisis" and "agotar el desarrollo".

Hope this will be of help.
Manuel
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En tal virtud, se ha resuelto conformar el informe que fundamenta el despacho del presente dictamen con la introducción precedente y con un resumen que sintetiza -sin agotar el desarrollo de cada caso- las imputaciones.
http://www1.hcdn.gov.ar/dependencias/cjpolitico/despachos/Pe...

http://www.google.co.ve/search?hl=es&newwindow=1&q="agotar e...
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[PDF] TESIS: JUSTICIA COMUNAL EN LAS COMUNIDADESAYMA- RAS DE FONO: EL ...
Formato de archivo: PDF/Adobe Acrobat - Versión en HTML
... No ha sido nuestro propósito agotar el desarrollo de tales conceptos, sino, simplemente, ,aproximarnos a ello y volverlos útiles para ...
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Senado de la República
Si queremos dar una ley que se acerque a la perfección, tenemos que agotar el análisis, la discusión y el estudio de todos estos asuntos que nos interesan a ...
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No obstante, siempre con el propósito de agotar el análisis de las pruebas.
empleadas para fundar la acusación, se procederá seguidamente a su. valoración.
www2.jus.gov.ar/Amia/sentencia/TI%20CX%20C2cviiiF1.pdf - 19 Oct 2005 - Páginas similares
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Published at least 45 times a year, The Weekly Law Reports (WLR) is the best way to keep up-to-date with cases heard in the Superior and Appellate Courts which either develop the law in some way or introduce a new point of law – giving coverage of the cases that really matter.
http://www.justis.com/titles/weekly_law_reports.html


James Crawford, Internnational Law Commission - [ Traduzca esta página ]
I only hope that the praiseworthy efforts to develop the law, and associated matters such as remedies for victims, do not turn out to stand in the way of ...
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http://www.google.co.ve/search?hl=es&newwindow=1&q="develop ...