Tim,
I think your quest for equality ignores the historical context of how golf/golf courses evolved in America.
Even today, great courses aren't being developed at the municipal level as much as they are the private level.
WHY ?
Because visionaries who love golf developed those courses, visionaries with a sense/quest for great architecture, not public servants/bureaucrats.
Jack Lupton, Lowell Schulman, Dick Youngscap, Ken Bakst, Mike Keiser, Roger Hansen, the O'Neals and others had a vision and pursued it.
What's the motivation behind a municipal project ?
Look at how golf evolved in Boston, New York, Philadelphia, Chicago, Palm Beach, and Pebble Beach.
It's the entrepreneurial, creative individual who's the inspiration and guiding force behind the great courses in America, not town administrators.