TMetzinger
Final Approach
You are mistaken how the system works then Grant. ATC submits a FAA form 8020-17 to the controlling FSDO through the ATQS system. Don't believe me? Look in the Order 7110 for controllers and find the procedure to "enforce" a Pilot Deviation (PD), it ain't there because they don't have the authority. The FSDO completes an investigation, files a FAA form 8020-18 and closes the PD in any number of ways from no action to certificate action with many levels of remedy and review in between.
Actually Grant's analogy is right on. Police don't truly "enforce" the laws - they merely file charges against alleged lawbreakers. They do have the means to arrest someone if they witness a crime being committed, or have reasonable cause to do so. But that arrest power is not without limits. For many many allegations the courts must get involved and issue arrest warrants before the cops can do anything.
The courts are the the only ones who can truly level sanctions against a citizen.
So, the ATCs may be able to act like cops in a limited manner and file charges, but the FSDO's are the equivalent of the lower level courts, where the charges are reviewed, and if found to have merit, action is taken.