A Strong Harness Narrows the Model Gap: A Comparative Evaluation for Legislative Document-to-XML Conversion

Legal-content reproduction requires matching the source exactly in section hierarchy, verbatim text, citations, and amendment spans; a dropped citation or mislabeled amendment carries into the products lawyers rely on. We report an industrial pipeline converting U.S. state legislation into strict, schema-constrained XML, and hypothesize that its accuracy comes from harness engineering, the deterministic tooling built around a model, more than the model itself. Our controlled ablation crosses three harnesses (zero-shot, a single tool-using agent, and a decomposed multi-agent pipeline) with three Claude models on 153 gold bills from two jurisdictions. The harness narrows the model gap: the weakest model in the full pipeline beats the strongest model alone (0.948 versus 0.806, paired bootstrap p less than 0.001). Because the two agentic harnesses share identical tools, their gap comes from orchestration: decomposition plus the persisted state and per-agent context it brings. Across four scored dimensions, the model spread at zero-shot (0.68 to 0.81) narrows to 0.95 at the full pipeline; the residual sits almost entirely in citation normalization, where the canonical identifier is retrieved from an external authority rather than generated from the weights, so a deterministic lookup tool supplies the exactness that a larger model does not.