Those are some of the most offensive lights but I wouldn't say it's the biggest problem. SUVs and trucks often have their headlights at the absolute highest point allowed and it's not uncommon for drivers to install lift kits which raise the lights even higher. If you're in a standard sedan, headlights pointing into your eyes is pretty unavoidable. Even a small vehicle that's oncoming and on a steeper incline than you may shine their bright headlights into your eyes.

There are no government agents going around inspecting all the vehicles coming off the factory line. Anecdotally, my friends Tesla has completely horizontal headlights from new. I could see oncoming drivers faces illuminate and wince in pain. A quick adjustment in the settings fixed that, however the majority of drivers are ignorant of the fact that headlights are usually adjustable.

Not sure there is any real solution other than going back to halogen lights or requiring sophisticated anti-dazzle systems.