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The browser can’t distinguish between legitimate “necessary” cookies that don’t require consent and those that do. Hence there would need to be a technical specification of how websites mark cookies that do (or don’t) require consent. Even more importantly, for cookies that do require consent, the user has to be informed about their respective purpose, so that they can make an informed decision about whether they want to accept or reject the cookie. So there would need to be some standardized way for the website to give that information for each cookie, if the browser is to handle acceptance on behalf of the user.

Lastly, cookies aren’t the only way of tracking. Websites can also use local storage, or fingerprinting, and so on, each of which can equally require consent. If the browser consent mechanism is restricted to cookies, websites would have to be mandated to always use a cookie to ask for consent, even when they actually use other means for tracking, and websites would have to explicitly check whether the cookie is stored or not in order to control any other tracking.