Same reason FileVault isn't on by default on macs.
Apple could do a lot to promote this feature to more advanced users, but they don’t. I don’t believe for a second this decision is unrelated to the government pressure they’ve been receiving from the UK.
The best analogy I can give is the way Apple gradually raised MFA from an optional feature with 1-2% adoption to a recommended feature that had majority adoption (even if it was not required.) They did this by heavily encouraging users to turn the feature on during setup, and then bugging them about it after setup. Apple is capable of encouraging and advertising security features it cares about, even when there’s risk.
1. Legacy devices are going away naturally. I doubt the number of Apple accounts with legacy (iOS/Mac) devices and routine iCloud usage is anywhere near a majority, and I assume the number drops every year. You can test for this condition whenever a user adds a new device, and encourage adoption for people who don't have this problem.
2. Apple already requires that you have backup phones and emails for MFA. They could easily enforce recovery contacts as a basic requirement for any new iOS device (even if ADP isn't turned on) and measure the stability of those relationships over time, until they're confident that these recovery relationships are viable. This would probably reduce their support costs as well.
3. Apple has a tool called "Safety Check" that's designed to help you secure your device. Last I checked, ADP isn't recommended or even mentioned by the tool as an option. This seems like an obvious place where Apple could boost understanding and knowledge about ADP, but they've chosen not to.
So yes, I do think there's quite a bit more that Apple could do. I think it's unfortunate that people believe that Apple is not currently downplaying this feature globally due to the UK mess, because that is certainly what they are doing.