While probably true, I think the emphasis is misplaced. The primary reason helmets aren’t as encouraged as elsewhere is the immense bike infrastructure that keeps cyclists safe. The risk is much much much smaller than in car focussed places.
In the last 20 years large shift happened in skiing, for example. 20 years ago almost no-one would wear ski helmet is US, now almost anyone does, although it's not required.
Yeah I saw it in skying, one year nobody wore a helmet then suddenly I felt very self-conscious about it. Same thing for MTBing. Skying, Snowboarding and MTBing are much more dangerous though and I happily wear a helmet going down slope over 25 km/hour. Biking 10 km/hour, essentially running speed... No. Bikes look like this here [0] and they are everywhere, don't forget, it's very different from this: [1]
[0]: https://denhaagfietst.nl/wp-content//uploads/2020/02/DHKruge...
[1]: https://www.triathlon365.nl/wp-content/uploads/2019/05/Vrouw...
I'm 40, lived for all of my life in the Netherlands, I hardly saw any accidents, and I never ever saw any accident where a helmet would be of any use. Yeah it's anecdotal, but I feel it's just safe enough. I feel the same about biking as I do about walking. Helmets wouldn't make it safer. But, show me the data to convince me otherwise. Still, lets say it makes things safer, I wonder if the net effect would still be negative because it would drive people into cars, where you don't need a (stupid!) helmet.
I think it's difficult for people from other places to imagine just how little cars you encounter with good bike paths, and how people drive around you when everybody is a "cyclist" (hate the word, it's just normal here) and a driver. For example in a collision, it's always the car's responsibility [0], because pedestrians and people on bikes are considered vulnerable, they always get 50-100% off their damages paid. It creates a certain culture.
[0] https://www.anwb.nl/juridisch-advies/aanrijding-en-dan/aansp...