Pat,
Yes, a tee set can be designed to reduce or eliminate a forced carry for the average Joe. But then, its not a hole with a forced carry for them, is it? I am reminded of a USGA one day study at a public course in NJ. Of 140 tee shots measured from the mid tees, only 104 got airborne.
That means 25% of shots off the middle tees are topped, if these stats are average, and I think they are. That means reducing forced carries by reducing distance from say 210 yards for the really big hitters on the back tees to a low of maybe 90 yards from the forward tees, still means that 25% of average players will find the natives, sand, whatever and it will slow down play.
There is even a problem with forced carries for good players. Facing facts that most courses will never host more than a sectional PGA event, the distances played by those levels players still range from a low of 240 to well over 300 yards. You have to set the forced carry to the lowest common denominator, i.e., maybe no more than 220 yards, maybe less in windy climates or some players just can't play the course.
As to maintenance, I recall the old super at PV telling me that mowing turf is a lot cheaper than maintaining waste areas.