Looks like Magento 2 uses an obsoleted specification RFC 2109 for cookies limit.
The new specification is RFC 6265, and it allows at least 50 cookies per domain.
So the MAX_NUM_COOKIES limit can be safely increased up to 50.
Locate the line:
Replace it with the new one:
const MAX_NUM_COOKIES = 50;
See https://github.com/magento/magento2/issues/1500#issuecomment-156421883