Diagram

[noah]

Here's a rough passage map:

Para 1: some say laws only legitimate if preventing harm. This can be applied to some situations that at first glance seem to not warrant.

Para 2: it seems like coordination is the goal, but preventing harm underlies these examples.

Para 3: more subtle examples of how preventing harm underlies need for law.

As for the scale, I'd say something like "preventing harm justifies a limited number of laws" vs. "preventing harm justifies many types of laws." Though, there's little discussion of the first side, so it's more or less an informational passage.