Normal people don't need "unlimited free international roaming", and it's easy enough to just get a local SIM card if you are travelling alot or for extended time, so there just is no broad basis for instituting this change which has broader repurcussions.
You underestimate how often people travel in Europe. In some places you can hit four countries on a day out. At one location where I worked, it was so close to a border that inadvertent roaming was an (expensive) problem. Getting a local contract SIM is hard in many countries not your own. You often need to show proof of residence and prepaid can be significantly more expensive.
In any case, there is the issue of managing SIMs with call forwards/whatever. It is possible, but far from convenient.