The problem was, they had to sell their invention to other guys that had grown up with 8-bit micros and in the meantime had gotten very attached to their specific 8-bit encodings, so they had to make a lot of compromises: first 128 characters match ASCII; first 256 characters match Latin-1; alphabets encoded in order; codepoint-to-codepoint transcoding from any (reasonable) legacy encoding; throw out enough stuff to not need more than 2^16 characters. They were also racing against time, because in the meanwhile ISO was cooking up 10646, the Universal Character Set, built around ISO 2022’s teletype-inspired architecture of charset switching, and that only got killed because software vendors essentially declared a boycott and pointed to Unicode instead.
The result came out rather awkward as well as fairly expensive, and a lot of the promises needed to be broken afterwards anyway. But they’d have no users had they had done things differently. (Meanwhile, the UCS as initially conceived lacked such advanced operations as string equality.)