Javascript : Why most javascript be used to write a cookie to a browser, why not a plain HTML file?

Javascript : Why most javascript be used to write a cookie to a browser,
why not a plain HTML file?

Whatever the browser wants.. can't HTML do it ?
The browser is suppose to be an
interpreter
it is not suppose to be "racist" or "biased"
towards who to accept the cookie from of.
why is it not possible to set a cookie simply
with a basic html page ?
or even an image file.
the browser is simply 'LOADING' these things.
and whatever is being "LOADED" is simply being
interpreted
in other words "BROWSER" is not suppose to take commands.
it simply should be listening to commands.
if it is simply listening to commands then even a simple
text file should be capable of writing a cookie to the browser.