While they can't directly tell a mall "you have to charge", they can encourage it indirectly through zoning laws: For example, they can cap the footprint of pa

While they can't directly tell a mall "you have to charge", they can encourage it indirectly through zoning laws: For example, they can cap the footprint of parking lot space, leading to stores building parking garages or taking their own steps to minimize freeloaders through metering. That's just an off the top of my head example. Never say the govt "can't do something". The have power of eminent domain, as an example of how far they are able to go when the actual will is there to have something they want. Check out the history of the new Fenway Park for things they can do.