The authority lies in the hands of those policing the racing to deal with abusive whipping and they should be more industrious in the enforcement of those rules. Penalties should be significant and progressive. Perhaps the whip itself could be redefined to be less abusive. They were once made of rawhide (ouch) and evolved into the modern polywhatever.
There is really no reason to strike the horse any time before the 7/8's pole and those strikes need to be in the fair zone on the horse. Rarely, very rarely, does a particularly vigorous beating propel the horse forward. The worst offenses are those imposed on the tired, poor, huddled masses at the cheap tracks that just want to get back to their stalls and lie down until next week, an issue for another time.