It's to deal with the actions that have a good cost/benefit ratio for everyone, citizens and companies. If something dramatically puts companies (the offenders)

It's to deal with the actions that have a good cost/benefit ratio for everyone, citizens and companies. If something dramatically puts companies (the offenders) at a disadvantage they will fight against that with anything they have. Hence the EPA is more like a pebble under a steamroller fueled by billions of dollars obtained by not actually caring what the EPA or people want. It's hard to move an opponent who has more money and power (of every kind) than you.