A good CPU design is very balanced and synergistic. Much of the individual components simply don't make sense without the design balance of the other individual components. For example, as you increase execution width you need more reordering resources, prefetching, memory disambiguation, etc. If you have too much of those things your net efficiency goes down instead.
It all has to come together in unison. And the overarching ideal for that unison will be dictated by power and area targets.
I don't think there's really an artificial gap. It's easy to compare Atom to Twister and say that it sucks. But they have different design targets because Apple is only putting the CPU in expensive, premium flagship products. So they can afford to have something bigger, they can afford to limit themselves to two cores with big caches. These are things that those targeting the broad Android and Windows markets can't do, especially when, like Intel, they're also putting the chip in low end 28nm TSMC dies.
And it's not at all a given that Intel can do everything Apple does exactly as good or better. They have their own legacy of experience and their own bag of tricks. Intel are industry leaders in CPU design but their long term expertise has been in meeting laptop, desktop, and server targets while their lower power stuff has largely been taken for granted - in the UMPC and netbook days OEMs took what Intel would give them and like it because they were the only choice (or VIA, but they were never going to be real competitors) Only fairly recently has Intel really started building experience in aggressive low power CPU optimization and SoC integration. It was not something they could just become the best at overnight, even given their resources.
Silvermont was decent for when it came out and the 22nm node it was on. They could have and really should have been more aggressive in releasing a much better successor for 14nm. Unfortunately they're stuck in a tick-tock mindset with CPUs, where on the desktop side this looked extremely aggressive, but on the mobile side has been falling behind Apple and ARM. They need more continuous improvement to compete.
But I think they've lost motivation because even when they have a reasonably competitive SoC it's been hard to get really big wins with Android, especially phones. A lack of the connections other SoC makers have and being tied to x86 has held them back and now they might just feel like it's not worth trying anymore.