Oh, so many reasons. There was a lot of crap online in the 90's, (not that that has changed at all), and you didn't get control over where your ad went. Both website owners and advertisers like control. It makes you feel warm and fuzzy. In an ad exchange, you're both an owner and an advertiser.
Basically, in an exchange, you don't get paid for ads that appear on your site, you get "paid" by your ad appearing on someone else's site. So if you're trying to make money on advertising, thats a problem, because there's no revenue involved. Also, you don't get to control where your ad appears, so its probably horribly targeted and not really doing any good. In this case, only some companies get help from display ads, not all companies will benefit equally.
Basically, people figured out that getting paid for ads on their site and then using that money for a targeted ad campaign (that comes with reporting, analytics, etc) on another site was worth more value than an ad exchange ever gave them.