We visualize laws of nature as bivalent: there are laws and then matter – the first control actions and the second are controlled. We can flesh this out in different ways (the laws might be separate from matter or immanent in it, matter might be really or notionally separate). Whatever this might explain, the laws also are essentially three-cornered – the law (1) explains (or just is) the relation between initial conditions (2) and final outcomes (3).
Seeing laws in their essential triangularity makes them essentially relative and mediating which negotiate the initial realities with the results we get or expect. Absent this three-cornered account, we cannot explain nature as we actually find it. Law needs to enter into the concretion of what was the case and what comes to be in order to explain the concrete world. This is why cosmology can, given an outcome, account for it by changing the laws or changing the initial conditions.
On the bivalent account of law, all that is intelligible about nature is from law, and so we can imagine all the intelligible content of the world might be located in law. On the three-cornered account, law presupposes some sort of intelligible structure already given. Law cannot get behind the intelligible but can only work from it.