What is needed is a body that is not answerable to the FA.
A body that would examine ALL faulty decisions (not just penalties) and arrive at a decision based on the laws of the game.
Each decision arrived at by that body would have a full explanation of the findings and call the FA and the Referees' Association to account for the incorrect decision.
Such a body should consist of ex-Premier league players.
Taking the Gordon penalty as an example, their findings could be as follows:
1. Did the incident occur in the penalty area? Yes
2. Did the defending player in making the challenge touch any part of the ball? No
3. Did the defending player come into contact with the attacking player? Yes
4. Was the contact within the laws of the game (i.e. normal coming-together of two players, or a shoulder charge)? No
5. How can the contact be defined? A push by the defending player sending the attacking player to the floor
6. What is the punishment for the offence committed at point '5'? A penalty
Such findings should then be submitted to the FA and the Referees' Association, and also to the public with a notice condemning the match officials for an incorrect decision, and how it materially affected the result, and the point(s) gained at the end of the game. The Gordon decision being a case in point, as it happened when the score was 0-0, and the successful conversion of ther penalty (never mind just the awarding of the penalty) would have changed the the play and what happened from thereon.
Until such times as such a body is set up and can lay into both the FA and the Referees Association, then nothing will change...