If one can "avoid penalty", can one also "suffer penalty", without an "a" or using a plural?
So, I cannot just "cause penalty", but could "cause a penalty"?
I'm not sure how you deduced that. But neither "cause penalty" nor "cause a penalty" is a proper phrase - unless you have a specific context that we could consider.
Who is the person who "causes" a penalty - the one who sets the penalty for an offence, the one who imposes it, or the one who incurs it?