The answer to some things can be simple. In South Carolina helmets are optional because otherwise several big rallies in Myrtle Beach would be compromised. KA-CHING!!
But overall? I'd guess it's the insurance industry. If someone is in a car crash while wearing a seatbelt, their medical costs will likely be lower. (They likely will live with or without a seatbelt, but with a seatbelt the medical costs may be much lower.)
But the opposite is true with a motorcycle. Brain/head injuries are very expensive, and may cost millions over years for therapy, specialized care and repeated surgeries. But without a helmet...NO head injury! Just death.
(While we're "typing", I'd like to share a confusing sight from the early days of covid. I actually saw a rider without a helmet, but wearing a facemask. Not sure was the point may have been, but it seems a bit wasted.)
Thanks for sharing.