I would also say that having the power to fine someone communicates a message to the public as well. If there's a $25,000 penalty and the penalty is indeed applied, then people say, “Oh, wow, the maximum was applied here.”
But when you have no penalties whatsoever, other than a mentioning, it's sort of like, “Tsk, tsk. That's really bad.” It gives the wrong impression as to whether this is really bad or really good. Having that penalty in place and imposing it communicates a message beyond the monetary amount.