R3,
The OP presented us with a clear scenario and asked a straightforward question. He did not present us with a range of scenario's, so take the question at face value. There may well have been other contributing factors, but we are not aware of them.
For decades, (well trained) ATCO's have been taught not to orbit circuit traffic on final. There are good reasons for this, and any pilot or ATCO should be aware of these. There are always other options. At the unit where I work, we are all aware of these, and resort to them on the rare occasion it is necessary to do so. Any ATCO caught orbiting traffic on final knows very well that he/she can expect a tough interview, followed by an "unsatisfactory" in his/her UCE file.
The ATCO in this scenario most definitely did not keep everybody safe - the OP was put at risk. Buying the OP a drink was most certainly acknowledgement of this, and was a deserved apology. I'm bored now, there must be something more interesting on telly.