Garland,
Every other sport seems to regulate the implements used so I would tend to agree with your premise.
I've also felt that the size of the driver clubhead should be restricted.
The question is, how to police the number of clubs in non-tournament events.
My theory is that the handicap system would automatically perform that task over time.
Someone playing with 14 clubs would probably have a lower handicap and as such, when they had to play with a reduced number of clubs, they would be at a disadvantage, which would be their price to pay for non-conformance.