The problem is that the municipality is a subordinate gov't within the county. They have no leverage over people outside the municipality, and basically had to have a court fight for every uncollected fee/fine, which rapidly ate all the money that could be collected... if the person living almost tax free on unincorporated land in a mobile home had the money to be collected.
Meanwhile, governments have excellent was of collecting on low-four figure debts secured by real estate.
And, as I pointed out, the appropriate punishment for freeloading is paying a heavy fine when you opt to use it.