Why were the lights on in the first place?

This Lights Out Boston program is pretty cool, but why is it only for part of the year, and why is it voluntary? Why not allow ISD to cite anyone who has clearly unnecessary energy-using items turned on?

(And no, I of course don't mean that they should be scrutinizing power usage and intruding into people's lives, but why not start citing businesses or homes that are completely lit up when no one's around? Much like how they don't pick through people's trash looking for a single recyclable item someone overlooked, but they do cite people for having a trash barrel that obviously contains a multitude of recyclables. Well, except for how they don't do nearly enough of said citing, but I'm using the example of how this falls within enforceable city codes.)