Intended use of PCBs is to provide a rigid platform supporting electronic components and so would you not agree that regulation is written with that in mind, as the bar for chemical safety would be set higher if the product was intended to be touched (even accidentally), rather than being hidden inside an enclosure away from direct contact?

Use of PCB as a human user interface started in hobbyist world, because it was cheap and easy to create sturdy front panels and was good enough for creating prototypes, but it was never meant for mainstream commercial use in this way - as PCBs even if they meet RoHS, still can contain dangerous chemicals - like flame retardants.