It's mostly hardware design limitations. GPU hardware is way more diverse than CPU hardware, so you need to distribute shaders as either source code or a portable intermediate representation, in both cases compiled at runtime for the user's actual GPU. There are also many fixed function parts of the graphics pipeline with wildly different behavior on different hardware which you need to abstract over. And it all runs in parallel with the CPU, often with a separate pool of RAM, so you need implicit or explicit synchronization and data transfer which adds a lot of complexity especially in error cases.

If you really want to see why all the cruft is there, and how much you could remove if you dropped support for older hardware, look no further than Sebastian Aaltonen's "No Graphics API" blog post (which he actually implemented too): https://www.sebastianaaltonen.com/blog/no-graphics-api/