However, from a safety point of view, I'm not convinced the trade off is actually in favour of reducing illumination for everyone.
The point I was trying to make is that reducing the brightness isn't a simple trade off. How many accidents are caused by people being "blinded" vs people not seeing something until it was too late?
If it needs regulation to fix then that regulation should try to balance those things. Perhaps by automatically adjusting the headlights when another car is detected (maybe matrix style headlights, or a simple angle adjustment).
Look at the output of a car from 10 years ago, 20 years ago, and 30 years ago compared to today.
Each is progressively dimmer with their low beams. Modern low beams are brighter than the high-beams of yesteryear!
Just turn the damn maximum output down.