Please default to trust. Just because you didn't understand my statement doesn't mean it's nonsense. I'll try again.
Everything depends on how you frame it. When making decisions, you can maximize utility for just yourself, or perhaps for friends and family, or maybe for everyone in your small town. How you choose to frame who you care about will determine the decisions you make. If you include "the government" in this frame of reference, there is no overall change in net utility when a ticket is given. Someone pays a large sum of money (negative utility) and it goes into government coffers (positive utility).
People who put change in meters likely do not include "the government" in their system of utility. In that frame of reference, a ticket being written is a net decrease in utility because the positive utility of government revenue doesn't matter.
My point is, actions that seem irrational to you may actually be understood as rational when viewed from a different frame of reference.