Because it caused a panic for many people during the initial breach when you went to the website about the breach to check to see if your information was involved. Many people opted for monitoring during that time or spent effort getting freezes, etc.
I agree, that reimbursing people for buying credit reporting they didnt need is the right thing to do. But thats it. Theres no other damage besides superfluous money spent and time wasted. These other categories of money (Besides time/credit reporting reimbursement) set aside, dont make any sense, because NOBODY has ANY evidence of damage, any any evidence people think they have, isnt related to Equifax.
