Some concerns here:
First, the difference between bogey and double bogey is huge for an 18 HCP.
Second, good golf architecture has multi-variate strategies built in. The hard par-easy bogey paradigm is built around this. I’m a higher handicapper, and the number of greens I lay up to is nontrivial, but only if the hole location rewards a bump and run from in front of the green.
Third, different high handicaps have different weaknesses. I was about an 18 for decades, I could pretty much always control the
side of the fairway I was hitting to, I just didn't have the distance modern players have because I used an unfitted driver from over a decade ago. Most of my weakness was the long irons into the green, leading to a lot of failed up-and-downs. Since upgrading my driver (with the 35 extra yards the fitting gave me), my handicap has been dropping precipitously. There are plenty of bogey players who can play to different strategies, they just aren't playing the same game as everyone else, and often struggle with things like putting, short game, or approaches.
The
vast majority of players are around bogey golf or worse. It's important to remember that while there are
3 million Americans who hold a handicap, there were
23 million Americans have been playing golf for over a year. So the "
average index" of about 14 is wildly misleading. I think it reasonable to presume that architects are designing courses with these folks in mind.