Indeed they do say that. The rules say many things which are regularly breached.
The biggest problem is with teams often being financially fragile, its hard to punish them. Take Renault's crash-gate for example - a pathetic 2 year suspended ban for race fixing. The FIA knew that if they imposed a financial penalty, Renault would duck out. With Honda having pulled out earlier that year and Toyota teetering over the edge (and now gone) - they couldn't take that risk.
Back to 'current affairs', Ferrari have been fined $100K to bring themselves back in contention for a drivers championship - thats pretty cheap considering the potential rewards.
So as I said previously, teams will favor the mathematically more advantaged driver because it makes business sense.
I personally don't believe the teams should be allowed to order their driver to pull over, and let another through. I would've preferred to see Alonso fight for that position, but when you're a team manager, in this case Stefano Domenicalli, are you going to order Massa to pull over and risk a fine - or risk them taking each other and not getting an almost guaranteed win, like the RedBulls in Turkey?
Of course we can all sit here and play armchair team manager/FIA/driver/steward - but we dont have that corporate and commercial pressure on us to perform and maximize the results for the sponsors.
I also highly doubt that F1 is in risk of having its ratings drop or attendance plummet any time soon. It survived Schumachers dominance, and has had 3-4 seasons of fantastically close championships. I dont have any statistics such as viewing figures or attendance records, but I would say F1 as a brand and show is probably the strongest its been in a long time. Especially with the lack of scandals this year.
James