The European Commission very proudly does not work with lobbyists, and in this case it shows that they did not consult anyone technical. I think they were just not aware of a browser-level solution and put all of the compliance on individual companies.
While the banners seem a given now, in 2017 when we first started planning for GDPR nobody had a clue how to resolve all of the questions. And at the time the European Commission was also telegraphing very hard that they were going to be resolving most of these questions with case law - none of us wanted to deal with a lawsuit from the EU, so the most obvious thing became do what everyone else does, don't stand out, and wait for some future resolution.
I don't know if there's a fix. This is simply how EU regulators like to work - in the US we like laws that are black and white and apply equally to everyone (or at least have traditionally). And in the EU they like a bit more squishiness - let member countries interpret things a bit differently and build individual cases on only the bad actors. And you see this attitude when working with lawyers from the respective regions.