Adrian,
I agree completely, and recognize that courses come in all shapes, sizes and forms, from private clubs with little play, to municipal courses that are filled to capacity. And yes, there are appropriate management responses for each.
Here in the U.S., most courses are profit driven and do their best to market their product, to fill the tee sheet. And, whether they actually fill it or not, they need to manage the first tee so as not to overcrowd the course and produce a low quality product. When the second tee is backed up, their paying customers end up standing around asking "Why did I waste my time and money doing this?" Sadly, they feel this way after only playing one hole. Not good quality and not good business.