It's extremely doubtful as to whether laws that have no penalties have any actual effect.
"Its's extremely doubtful"＝「それは甚だ疑問である」
"as to whether laws that have no penalties"＝「法律で罰則がないものに関して」
"have any actual effect"＝「実際に効果があるのかどうか」
Sentence in context:
"There are such laws that prohibit the use of smartphones while walking down the street, but they have no penalties even if you break these laws. So, do they have any actual effect at all?"
アメリカ合衆国 
