I think so much of it is just a scale issue. I grew up in a mid-sized suburb in the Northwest just a couple decades ago. Most road were only 2, or maximum 4 lanes. The idea of driving around without your headlights on in the dark would be unfathomable. And if you did, you'd get honked at, flashed, and presumably at some point within 5 or 10 minutes, a police officer would see you and stop you.
That area's gotten bigger, and I moved to the Bay Area, which is bigger still. 2 decades on, It's not even worth COUNTING the number of vehicles without headlights on in the dark or rain. I never thought I'd be one to complain about too few police, but I see at least 10-20x as many vehicles with no headlights as I see cops (for example). Much of my commuting is on the freeway, and CHP are few and far between but also police aren't so common on surface streets either. And when they are there, they don't bother pulling anyone over for "small potatoes" stuff like this. I don't know if they're waiting for the next violent crime, or what, but it would be nice if they did a little "broken windows" policing.
Why don't they bother? I don't know. Probably because everyone's busy, everyone has a sob story, their stupid new car with its light-up instruments on 24x7 makes it LOOK like the headlights are on, the daytime running lights make you THINK the headlights are on, are you really going to give a ticket to someone just trying to pick up their kid from school?
I wish the answer was YES, but it just feels like everyone's stopped knowing or caring. When you don't own the same vehicle for 15 years, you have no idea how the controls on this week's lease work, there are too many cars on the road, the problem has gotten too big, tech has taken over too much of it.. everything just feels out of control.