Well, in those cases it's important that the police controls them and handles them tickets. In this way they will become more aware of the need of being visible, for their own safety.
It would be a deterrent to people not using lights and other night riding safety equipment but sadly the cops, around here anyway, are pretty incompetent when it comes to this sort of stuff. In an ideal world this would be a regulated thing but sadly it seems to be a situation where all logic goes out the window as far as councils and governments are concerned.