Furthermore in Hospitals you make people wash their hands (as in you post security gaurds at the hand washing stations and none shall pass a station without washing) and you have separate wards for those with MRSA and those without MRSA.
If you need an antibiotic that is not in rotation, you are hospitalized while everyone makes sure you take your full course.
Doing these things eliminates about 90% of the problem.
There are third world countries that don't care and will not follow any of those rules. Also foreign prison systems, particularly in Russia, which breed TB.
Then there are people that are prescribed low doses of antibiotics for things like acne. I imagine that's a huge risk more than all the other things, taking it every single day.
And, as others have mentioned, agriculture uses about 50% of the world's supply of antibiotics IIRC, and that's not really safe.
It's much easier to make antibiotics prescription only. Which we have. For humans at least.
I don't think the decision has been conscious.
More importantly the costs and benefits haven't been amortised over the life (and impact) of those decisions. Or, if you will, it hasn't been worth it yet. Unfortunately at the point where we can properly assess the enormous cost of these decisions, the opportunity will be long gone.