Apple's just not going to do it. From my perspective, they run into too many issues of ownership - there are definitely problems proving that the "merger" isn't really a fraudulent account take-over. Does Apple want to get into validating all that, and risk issues if they turn out to make the wrong decision ("this is the same person")?
Not really that hard of a problem to solve. Just require that the credit card, name, address, etc on both accounts match and do two step verification logins for both. It's doable, especially for a company like Apple. The only issue is that they don't really have much motivation to actually do it.
It's possible for you to move most (or all) of your iCloud data into your old iTunes account, though Apple won't do it for you. The easiest part are your Contacts. When you sign out of iCloud you're asked if you want to keep your contacts on your iPhone. Say 'Yes,' of course, and then when you sign into the other account, you'll be asked if you want to merge the contacts on your phone with that iCloud account. In most other cases, you need to backup the data from one account and then import it into the other. This article explains how: https://support.apple.com/HT204055
One factor not addressed by that strategy is if your "iCloud account" is an iCloud.com email address. No way to reassign an icloud.com/me.com/mac.com address to another account the way you could if it was a non-Apple email (gmail.com, yahoo.com, etc.). To Apple, those addresses are always accounts (or if they're aliases, permanently attached to an account), so their "no mergers" policy applies.
Yes, my account is an icloud.com email address. I don't want my contacts on my iTunes account. I really hate how they made the addresses automatically an account instead allowing you to connect it to an already existing iTunes account upon creation.
On the assumption that Apple won't help people "simplify" by eliminating multiple accounts, Family Sharing (which preserves the individual accounts, so things can be un-done when/if necessary) is the workaround. Sure, you can't "simplify" to a single account, but I'm fairly certain the "legacy" account does not have to be signed in once the share has been setup. In other words, you could sign into iTunes/App Store purchases with your iCloud Apple ID for new purchases, while relying on the old iTunes/App Store Apple ID for past purchases without being signed in somewhere. Yes, you would have one more account name and password to keep track of in your records, but if you're like many people, you already have dozens or hundreds of login accounts to keep track of. It would be nice to clean house a bit, but in all my years of having keys on key rings, about the only time I could "simplify" was when I moved into a new house (or got a new job) that had fewer doors than the last.
Exactly. It's a work around. Instead of actually taking the time to really help fix the issue Apple just provided an entirely different feature that could be used as a workaround.
At least they made it easy on iOS to have two separate accounts for iTunes and iCloud.