As other answers pointed out, it is most likely generated by some tool.
But if I were the original author of the file, my answer would be: Consistency.
If I am not allowed to put double quotes in my attributes, why put them in the element's content ? Why do these specs always have these exceptional cases ..
If I had to write the HTML spec, I would say All double quotes need to be encoded
. Done.
Today it is like In attribute values we need to encode double quotes, except when the attribute value itself is defined by single quotes. In the content of elements, double quotes can be, but are not required to be, encoded.
(And I am surely forgetting some cases here).
Double quotes are a keyword of the spec, encode them. Lesser/greater than are a keyword of the spec, encode them. etc..