it's only a cost because the budget for building things like toll-roads considers the future revenue of fines as one of the payback streams. fwiw I think it's

it's only a cost because the budget for building things like toll-roads considers the future revenue of fines as one of the payback streams. fwiw I think it's a a stretch to call it a cost, it's a sympathy move. More like "City fails to fine those who violate toll-road regulations.", but then you lose the in-grained sense of outrage that a headline that makes it sound like you personally are the one helping to foot the bill these people produces.