How is it legal to ticket the owner of the car who may not have been in the car at that time?
Because it is civil and the ordinances read that the owner of the car is liable. If the owner goes to court, it is my understanding that the judge will expect them to tell who the driver was, what happens from there, who knows? It is like one of the other officers that opposed them said, "Only the honest people will pay these so you're only punishing honest people when they make an honest mistake".