How a penal code is implemented.  Keeping in mind that you are not contesting the penal code, your contesting that the state is not following it.  Who is making sure that the government is doing what they should be doing?  I would think it would be the court system, however courts are expensive and time consuming.

So if you feel that an agency is not following a particular penal code who do you complain to?

I would think you first try to reason with the agency, but after that fails then what?