I believe at least 2 factors at at play here. First of all, the HID fad started in Europe where the signs are self-illuminated, which means the lights can be designed to aim low or with sharp cutoff since they are not required to light up the signs as we do in the States. This explains the lack of complaints in Europe. The blinding problem only surfaced as the lights were adapted to the US market. Second, HID is characterized by higher color temperature, where our vision is more sensitive. HIDs will still seem brighter than their regular halogen counterparts if they are of the same intensity.