I think most people do care about keeping their city clean, at least in western Europe. The problem is that it's enough for a very small fraction of the people to ruin it for everybody else. Besides, I'm not sure if littering fines work. I'm all for it, but the risk to get caught is incredibly low. I mean, 700000 persons driving without driving licence in France, bikes get stolen like there's no tomorrow, I could go on and on... nobody cares about fines.