The problem isn’t LEDs though. The technology isn’t what’s making it bright.
The regulation needs to be specific about what they want the end result to be, not about the specific technology used.
Like: there should be a mode of operation where oncoming traffic at x distance, seated at y height, on level roads should not experience more than z brightness.
I think it is LED technology. LEDs have a very small bandwidth. Even white leds are just three very small small bandwidth emissions.
The very tight intensity in such a small bandwidth is hard on the eyes. Even when compared with the same power of older lighting technology, which has a comparatively massive bandwidth.
LEDs could be designed to compensate for this better. They could add more different colours of LEDs to the matrix that makes up white LEDs.
Or maybe actually enforce our existing laws on this, and make actual punishments for when people modify their cars and don’t align their headlights.