Most people I know of treats Docker.com as some kind of infrastructural service, it's like GitHub/GitHub Action+a Package Manager (Registry). For those who use these kind of service, they're expecting some kind of advanced (feature rich) free package for individuals, and a more advanced version for people who makes money out of the image/product they uploaded.
So, I think the nature of the service environment basically determined that most people who use Docker Cloud will end up be a free tier users. I guess this is something needs to be cracked by Docker Inc.