Description of the bug
The code block on https://api.backdropcms.org/api/backdrop/core%21includes%21config.inc/function/config_set/1 says:
string $config_file: The name of the configuration object to retrieve. The name corresponds to an JSON configuration file. For
config(book.admin)
, the config object returned will contain the contents of book.admin.json.
However, the string $config_file expects only book.admin instead.