Also, some agencies sell the numbers range to publishers (I believe the US is in that case) and others give them away at no cost (France). As a result, some small publishers get ISBNs from more liberal agencies than their own country: one can never be 100% sure a French ISBN matches a French publisher for example.
It's also possible some publishers re-use old numbers or affix the same number to different releases/editions of a book.
It's a mess.
But a global centralized system would probably be way worse, so we have to live with that mess.