At a UI meeting quite a while ago we decided to relax the idea that the shortcuts would only apply to the active item.
So this task just involves reverting some of the early changes to the modifier operators.
This is based on feedback (https://devtalk.blender.org/t/ctrl-a-for-applying-modifier-under-cursor-2-91-not-active-2-92-2-93/17490/14)
and the noticeably slower workflow for adding and duplicating modifiers.
Also, other modifier stacks (constraints, grease pencil, effects) still use the hover shortcuts as well.
Separately, I'd like to experiment with making the modifier icon blue instead of an outline around the box to indicate the active modifier.
We didn't really discuss this, but I think it would probably look better, and since the active modifier would be less important in this scenario (only controls context), it might make more sense too.
Initial feedback is that this isn't consistent with other areas in Blender (we don't use this blue icon for active idea)