It is not the same in all the countries - for example in Poland the goal is to get you to pay fine and if you go bankrupt then civil servants get special points. There is a culture of hatred towards private businesses coming back from the communist times.

Second, you don't know that - bored civil servants eager to hit targets and get bonuses for scoring big fines could have gone for a low hanging fruit that is small companies without legal teams scared and paying instantly.

Third, as its current state GDPR doesn't feel like ready "for production", so why would companies want to implement something with so many unknowns?