Years ago the Dept of Ag would get a high bacteria count on our dairy farm, come in and fine us for this and that...but then they began to change. Realizing that such tactics did not work, now they come in and work with us to get our bacteria counts down, and to find out what is causing it. For example, we used to use a weaker solution of iodine to clean up the cows, but now use a surgical grade iodine that does a much better job. It is expensive, but works. In the end the people who drink our milk are really the ones who benefit (and if you ever drink McDonald Milkshakes, you benefit).
It is the same thing here, voluntary compliance works much better then imposing fines.
Citing a company from afar (bird dogging) is lazy and uncalled for. It was the one thing I never did as a Safety Coordinator for the railroad. I worked hard to educate people on how to work safe, and to motivate them for their own kids and wife, and not for the railroad's sake so that when I was on a different crew, they would remain working safe...for their own good, not to prevent a citation from me. It must have worked, our losses were reduced greatly... so much so that I did not have a budget...whatever I asked for I got simply because the injury rate was so low (a 12 million dollar reduction).
We did have one motivator that other industries do not have though; on the railroad individuals can be fined by the FRA and not just the employer...the railroad company itself. Some of these individual fines can be as high as $5,000-$10,000 dollars. That was a pretty good motivator!