How can an agency receive a complaint when the complainant is the agency itself?

There needs to be a hard boundary between crimes and ordnance violations. A cop can intervene against or investigate a crime on a tip or on their own, but a regulatory agency shouldn't have the same latitude in enforcing civil ordnance codes; the codes should be on the books, but should only be actionable if some individual publicly complains (emphasis on publicly; no more anonymous tips).