Throttle based on what? IP address? This works for domestic IT departments looking to shut out automated attempts from specific ranges but at Google's scale IP based filtering could end up shutting out an entire country.
User Id?
So for example LinkedIn has a breach, which reveals to evildoers that user 'johnsmith@example.com' uses the password 'smith1234' then they test that username and password in Amazon, Netflix, Steam and so on.
They only make one attempt per account, because they only have one leaked password per account. Hence, throttling per account isn't an option.
There was automated tools that did this too!