Interesting reply from the respected HD. I can't think of anything worse that would dissuade a pilot from communicating with an ATC unit. We're supposed to help our customers and not put the fear of God into them. I also question on what authority you can order another unit to issue a squawk instruction to a pilot at a possible crucial time in his/her flight, particularly in a circuit pattern when workload could be high and that instruction may compromise the safe conduct of the aircraft....landing checks for one example....traffic lookout for another......possibly a student.....BIG liability to take on!! To say nothing of the distraction to your primary task.
We can't have home-made rules without proper Authority and guidance; I say again that Controllers are not and should never be viewed as policemen. Fill the form in and let the system look after it; I'm not bothered if one or two get away.......education and awareness programmes are the friendly way to go.