Yeah, that seems like an odd factor to include. The whole message of fines is supposed to be "don't do these specific anti-social things" not "be sure to factor in the arbitrary charges you'll be hit with".

You'd be surprised at how many people will only see the latter. When they introduced congestion pricing in NYC, there were actually people who were commenting, completely unironically, along the lines of "There's no way I'm going to pay that, I'll just take the train. That'll show em!"

They 100% saw the fee as solely a means to tax residents, and didn't even consider that the primary purpose could be to change behavior.