Hi John,
I've now worked for two experienced PRO, both of whom explained it thus:
It's up to the OTHER COMPETITORS to lodge protests. Even if the RC observes the infraction, they make note of it, but it is up to the racers to police themselves. The racer committing the infraction SHOULD do the gentlemanly thing and admit to the infraction and ask for a penalty, or else the other racers should lodge protests against him. Only if the 'offending' racer is obviously unsportsmanlike should the RC get involved.
This concept, as I understand it, is first to relieve the RC of some of the stress from having so much to do, and second to encourage sportsmanship and decency amongst the racers themselves.
Unless I just way didn't understand the explanation ;-)
sea ya
tami