Because Americans are taught that if they work hard, and excel, they have a good chance to "make it", to "get to the top". So that server or bartender instinctively knows that if he or she is given a standard wage, that's as far as they will go.
However, if they are responsible for what they make, then if they work as hard as can, and are good at what they do then there is a chance they can make their way to the top. Or something.
America has enshrined the concept of "opportunity" and "hard work will make you rich", and servers and bartenders buy into that concept. It's frustrating.
And yet despite that in most jobs people are paid a defined wage.
But in an industries that depend on keeping wages low to make a profit, either the industry moves to a location where wages can be kept low, brings in workers willing to work for low wages (immigrants for example) or fights tooth and nail to prevent any wage increases.
Retail stores and restaurants accrue extensive labor costs while maintaining a very tight profit margin. It's no accident that they feature heavily in news articles about the 'wage wars'.