Congressional hearings on headlights seem to focus on lumens, but the bigger issue is misalignment. I worry that setting a lumen cap will undermine LEDs strengths. Adaptive matrix like Tesla Model Y etc , which shade oncoming and leading traffic, allow incredible visibility without the glare.

Even with static headlights, the beams need to be realigned every year or two. Vibration puts them out of order.

A weak beam pointed at your eye will be more blinding than a much stronger beam aimed properly.