Because its not that cut and dried
QUESTIONING THE BENEFITS OF CYCLE HELMETS
There are other grounds too for questioning the benefit afforded by wearing cycle helmets, in particular those relating to their strength - the BSI specification makes it clear that cycle helmets only provide that degree of protection for low speed impact, that is up to about 20 kph, which is required to reduce injury if someone falls off their bicycle and without a motor vehicle being involved (British Standards Institute, 1991) - and the effect of helmet wearing on the propensity to take risks.
Level of protection from cycle helmets
The protection afforded by cycle helmets falls well short of the heavier, more stoutly constructed and more complete coverage of motorcycle helmets which are better able to withstand the impact forces from collision with a motor vehicle. Table 2 shows the number of each type of road user who has died from head injury in an accident in the last five years for which the statistics are accessible for such analysis. It is salutary to note from this that, in spite of the fact that motorcyclists are obliged by law to wear a helmet with this enhanced level of protection at all times, 45 per cent of their fatalities still result from head injury, compared with 71 per cent of those of cyclists - only a minority of whom wear a helmet. It can be seen too that cycle fatalities account for only 1 in 17 of all road fatalities and 1 in 12 of those that are result from head injury.
By wearing helmets, cyclists are at best only marginally reducing their chances of being fatally or seriously injured in a collision with a motor vehicle which is the predominant cause of these injuries. Even the most expensive ones provide little protection in these circumstances. Moreover, the argument in favour of helmets would have validity if there were proof that behaviour does not change in response to perceived risk. But there is no such proof. Safety devices encourage higher levels of risk-taking. As a result, cyclists are likely to ride less cautiously when wearing a helmet owing to their feeling of increased security. After all, the message of the advocates of helmet wearing is that such a practice will protect the cyclist's head adequately in the event of any accident, not just a minor one when cyclists are hit by very slow-moving vehicles or fall off and hit their heads on the ground. Cyclists may be less likely to have an accident if they are not wearing a helmet, and are therefore riding with greater care owing to an enhanced sense of their vulnerability.
http://camdencyclists.org.uk/info/tforum/hillman1991