If everyone slowed down, there would be far more congestion backing up due to reducing the throughput of the road.
I would argue that the people driving at distances closer to the car in front of them are reducing congestion by increasing the throughput of the road. Obviously this is mitigated by decreased throughput due to increased probability of collisions.
But if EVERYONE drove such that they could fully stop if the car in front do them fully stopped, you would have a public uproar over how much backed up traffic there was.
There road is basically constantly in flux and politicians could enforce minimum driving distances very easily with cameras and drive down collisions, but it would be massively unpopular and they would get voted out immediately. I presume that is why we already do not have speed cameras in the US.
It would be trivial to fine everyone breaking the speed limits. Or even driving too close to each other. For a tolled road, you can get go back however many years you want and retroactively fine people for going past the speed limit based on toll time stamps. But I figure the lack of this happening means the public wants to make this risk vs convenience trade off.