What you fail to understand, is PIU protocol. They take their findings to the prosecutor. The prosecutor decides whether charges will be filed, since they are the ones who take it from there. That's how it's set up by the administration, the Commonwealth's Attorney, and the County Attorney. PIU doesn't do open charges on you except in exigent circumstances, or if KRS calls for you to be taken into custody immediately. If the prosecutors want to prosecute, they'll prosecute. If they don't, they won't.