I'd guess several reasons, or rather aspects of the issue:
- proximity detector is another potential point of failure; including it raises both installation and maintenance costs
- when you're walking at night, you'd like to see further than the distance between two lampposts; this would require the proximity sensor to trigger several lamp posts arond you (totally doable, I guess, but again extra installation and maintenance costs for having the lamps wired together in the right way)
- in the past, streetlights were using sodium-vapor lamps, which have a significant warmup time
- now lamps are switching to LEDs so warmup time is not a concern, but I wonder how constantly turning them on/off impacts their longevity
Wearing my optimist hat, I think city planners are comparing costs of the issues above with potential savings. But pessimist in me tells me that it's mostly because electricity is cheap and incentives to optimize streetlights aren't strong.