Does F1 need provisions for penalties for situations involving substitution drivers?

Following his botched attempt to overtake Pascal Wehrlein at the 2017 F1 Monaco GP, the stewards handed Jenson Button a three-place grid penalty. Button is unlikely ever to serve this penalty as his participation was a one-off substitution for Fernando Alonso, who was competing in the Indy500.

It isn’t the juiciest of topics, but it’s worth noting that the F1 Sporting Regulations make no provision for any meaningful penalty in these situations.

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Does F1 need provisions for penalties for situations involving substitution drivers?