The majority of the 19,162 penalties in England and Wales - up from the previous record high last year of 13,443 - were issued by private enforcement companies contracted by councils, the research found.
These companies are paid per fine and so, argue civil liberties campaigners, they have an incentive to issue as many as possible.
"These fines are clearly not fit for purpose," said Josie Appleton, the author of the report by a group called the Manifesto Club, which campaigns against what it calls "the hyper-regulation of everyday life".
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