Seems reasonable to me. If there were only 117 citations in five years, the law was tremendously underenforced. Tons of people fail to wear a helmet while cycling. Underenforced laws are really toxic to civil society and policing.
If there’s a rule, or a law, it should be enforced. Seeing a bunch of people ignoring rules and laws makes people think the rules are meaningless. Worse, rarely enforcing it gives police the discretion to use it as a tool to punish arbitrarily.