I always thought that the strokes were determined on holes where they were most needed by a bogey golfer when playing a scratch golfer, but that these were somewhat adjusted so that the highest ranked stroke holes were not at the start or end of a nine, and so that odd strokes holes were on the front and even stroke holes were on the back.
Players often thought that the stroke ratings were based solely on the difficulty of the hole, and this was encouraged by TV broadcasters. But my understanding was that difficulty of the hole didn't really matter, especially if a hole was very difficult for both low and high handicappers.
But it seems like hole difficulty is now a more major consideration.
This is how the USGA describes it as:
The conclusion was to base the stroke index table on overall hole difficulty relative to par as a starting point, then use the procedures that work well to provide equity in match play, including placing odds and evens on different sides, avoiding consecutive low stroke index holes, and avoiding low stroke index holes at the beginning or end of a nine.
Did this change when the WHS was introduced?
Here is my quick take. As I recall, like Wayne, the former USGA "recommendation" was to calculate the difficulty factor on the "most needed" basis by comparing scratch and bogey player difficulty based on
scoring data from competitions. The Jan. 2020 (new) Rules of Handicapping recommends essentially the same method, except that the relative difficulty for the scratch and bogey player is based on the
course rating for each hole.
The 2020
Rules of Handicapping book, Appendix E, gives a simple example of how that works. To determine the relative difficulty you need the par and bogey rating for each hole. I thought the principle, with the example, was clear and very helpful to an understanding of the process.
If you turn to the Jan. 2024
Rules of Handicapping book, Appendix E has been changed. The example of how to determine the relative difficulty for the bogey and scratch player has been eliminated and replaced with the following: "Authorized Associations can provide a report detailing the difficulty factor that has been assigned to each hole derived from the course rating system." I do not know when the change in the wording occurred, first in 2024 or earlier, but I liked the 2020 explanation much better.
Regardless, the principle of difficulty relative to par remains on a relative basis between the scratch and bogey golfer.
My unsubstantiated opinions. (1) Using the competition data is better than using the rating data, although it takes the Committee more work; (2) None of this means anything unless players properly post scores as they should under the Rules of Handicapping, which most players do not (vanity is a bigger issue than sandbagging); (3) course difficulty changed but course not re-rated can be a problem; and (4) Stoke allocations should be based on the tees you play from, though I'm not sure how this would work when you play from different tees in the game, and it would be more complicated in any case.