For me, the fundamental problem, and therefore hazard, to overcome in golf is distance. Golfers spend shots to overcome distance and those that can spend those shots more efficiently are best.
When I refer to distance as "penal" that indicates that the most pressing issue on the hole is distance. Think of a hole that is just outside the range of two or three shots.
With the example of the tenth at Riviera, the combination of hazards and the lack of distance makes that distance not penal.
In contrast, take the 15th at Bethpage Black, where none of the specific bunkers are so penal except for the context that the hole lay just outside the comfortable range of two shots for most golfers. Therefore, the distance can be considered the penal hazard.