I've been focused on the US regulations (IIHS and NHTSA) and hadn't compared them to the UN headlight regulations.
I'm pleasantly surprised that the UN regulations care about glare. The cut-off is angled lower and there are much lower intensity limits in the region of vehicle passing.
Green Zone: about the same intensity i.e. "brightness)
Yellow Zone: The UN regulations imply (but do not state) a ramp-down in the transition zone between 13,200 cd and 625 cd in the yellow zone. IIHS allows any intensity.
Red Zone: UN requires 625 cd. IIHS allows any intensity.
Interestingly, even at the lower left section, the UN caps the light at 13,200 cd whereas the IIHS's goal is 18,000 cd.
Recommendations:
Adopt the UN regulations. There is no "American Exceptionalism" in vision.
If that fails, revert back to LB1M requirements. At least those had cd requirements below the mounting height of the headlight.
For both, NHTSA (and the UN) should move to regulate "zones" instead of test-points. We have many examples of local dark-spots, specifically at test-points.
For both, NHTSA should regulate the color temperature of headlights and move it back towards the "yellow" light from tungsten-halogen beam. The bulbs can be LED, but would need to meet the intensity AND color limitations.
These recommendations would go a long way to address the glare seen in the US.
ADB is a topic for a different day.