I can answer why. I am a Pharmacist.
Lidocaine and prilocaine are a eutectic mixture. That is, when the crystals are mixed they become liquid at room temperature even though both drugs separately, are crystal solids at room temperature. This liquid mix is much more readily bio-available when incorporated into a topical vehicle, such as a cream or lotion. The two anesthetics together work better than a single anesthetic.
Plain Lidocaine must be dissolved in a non-active vehicle before mixing with a topical vehicle. So why not just make a stronger concentration? There is a functional limit for topical anesthetic purposes, about 4 or 5 %. This does not even account for side effects. Lidocaine is also a very potent anti-arrhythmic and can slow down the heart rate. Too much is not good.
I hope this explanation helps.