IMHO, the answer as to why regulatory agencies are so pessimistic in their risk assessments of birds vs. aircraft has little to do with safety. Sure, that's the catch all phrase, and the nobel intent behind the rule making process, but without a single incident of a drone striking a manned aircraft - let alone doing damage or taking one down - the "if it saves only one child" mentality is at a fever pitch.
Who benefits from drone regulations? Well, we could argue that the flying public does - but if the science proves the risks are minimal (if not zero), then we should look to the next benefactor. Certainly not the drone producers. Arguably, the drone market in the US has been stifled by both uncertainty of pending regulation, and now over regulation. With the near-hysteria levels of ant-drone media reports (i.e. trash bags at 10k feet are reported as drones and aircrew are injured by evasive actions taken to avoid impact, etc), the public clearly feels a visceral fear and repulsion to drones. Whether it's a direct threat to safety, or someone losing their privacy, the public has been conditioned (if not outright brainwashed) into believing that a drone, any drone, is used only for nefarious purposes.
So with the aid of media, and the perpetual fear drum being beaten by the FAA (remember, it was a .gov employee who crash landed his Phantom on the White House lawn), a perceived problem exists that only the government can solve. This is the equivalent to someone breaking your leg, and then when you can't walk, you thank them for giving you crutches. So, again, IMHO, the benefactor is .gov. Their own actions have created the fear we witness, and now, they arrive as heroes to save us. Political points for new regs.
The ability to force all operators to bow and comply (register and pay a fee), showing the populace once again that they cannot safely exist without government protection, is an added perk.
Color me cynical, but I don't for a second think these regs have anything to do with safety. Just like TSA has nothing to do with protecting passengers. It's theater. And we're buying patrons. /rant off.