I think it is to "scare " people into paying it instead of taking it to court. Because that will save time and money for people that seriously need to use the court systems.
Like you don't see cops charging people criminally with a smaller offense when they get arrested. Why?, my guess is because they are already going to court, but if you plea guilty and not waste the courts time by going through with the trial they will reduce your charge there as well.
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