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Because mods have been mostly ignored for the last two years and no one knows much about why they are how they are, other than that they could be better.Trade terminal searching could use help also.
To bugbo: They have a maximum level because the lower-level mods are 'better', so as to give them worth; the lowest level of mod can go up to like +20 or something, while the highest level of mod can only go up to +10. This is because that number is literally a percent; a level 75 weapon doesn't need a 20% boost to its damage, but a level 25 weapon can without imbalancing the game.