Jud,
If my purpose was to sell magazines I would aim to make news with each ranking but under the constraint that the rankings must hew pretty closely to consensus. What we might call "Brownian motion" or just "noise." I want to make news for the right reason; ie, not because I've lost credibility.
How would I accomplish this? For starters, I would want to control outcomes as much as possible. Therefore, I would need to find a way that reflects my views on what makes for "greatness," views that have been formed in part by the consensus. For credibility, I would create a very large panel of raters -- size makes it easier for me to control raters and outcomes. I would use raters as a beard.
Each course won't line up exactly as I'd like which gives me the opportunity to argue the ratings are independent of my views. (Of course, the raters would read my views and know it's not wise to be fingered as a consistent outlier, thus further harmonizing the outcomes.)
Jawboning can go only so far so, in addition to using statistical techniques to "smooth" the outcomes, I'd work the criteria. This is very effective, so much so that unfortunately it reveals my strategy. Maybe I got too obvious with a criterion (say, "tradition points"). So, after being hounded into that recantation, I focused on adding / subtracting criteria. Also, I focused on choosing criteria that was purposefully ambiguous: such criteria enabled me to "educate" raters on meaning. "Walkability" is a good example of the former and "shot values" or "ambience" of the latter.
These would be the primary means by which I'd manipulate outcomes.
Now, after doing this for a good while I'd imagine I'd gotten good enough at methodology to seed any course pretty close to where I'd like it to be. Once I mastered that I could change / adjust the criteria to produce the necessary "Brownian motion" that ensures each biennial ranking looks fresh without much really changing and without the outcomes getting too far afield of where I want them.
Creating the illusion of a dynamic ranking is important to selling magazines and winning ad dollars, which is what all of this is optimized for. There's probably some job preservation in there, too: if the rankings just sat still I might not be needed as much.)
Full disclosure: I'm not a conspiracy theorist but I play one on TV.