Yes but notice that the handicap here belongs to the golf course, not he player skills, and should be weighted accordingly. To reduce the handicap bonus a player could change game mode.
The only way I can think of for the course to automatically "level" itself without applying some sort of weighting factor would be to actually tune the difficulty of NPC opponents and have that tuning apply across all modes.
Nothing as crass as "points scored in open are worth more" or anything like that.
Take, for instance, 1.0 powerplay expansions. They're basically just a race to grind merits at 10 points per kill in endless conflict zones. A pair of players going AFK in PG with healbeams pointed at each other and the rest of their hardpoints as fire-at-will turrets can rack up a
lot of points - the method isn't viable in open, because as soon as someone finds them they're going to come back (or wing in some friends) with phasing or reverbs and just delete them. Simple weighting of the points in pg versus open wouldn't fix the problem of AFK builds like this either- the weighting would have to be
insanely skewed to overcome the sheer volume they can put out. Even people flying in solo can do so risk-free with boats that are optimised for chewing through NPC eagles as quickly as possible, which is a very different build to what you'd bring if you were facing other players.
If you want an even playing field, players in all modes need to face equal risk - either from players,
or from ramping up the NPCs.
Now, if there
was to be some sort of open weighting in an opposed action (like expansion CZs - and who knows if they'll even be a thing?) then what if it was just something as subtle as... a tip of the scales of the NPC spawns? If one side is performing more actions in open than the other side, then the field could be tilted in their favour slightly by spawning slightly more and stronger NPCs into their team - their opponents can keep grinding in solo/private if they want, but they'll eventually start to see fewer eagles and more pythons spawning in the zones.
And of course, in 1.0 expansions, all that matters is the number of kills, it doesn't matter how tough those kills are so having to chew through an anaconda for every 10 points instead of slapping an eagle or viper out of the air will slow you down.
But you can still play, and still fight.
I'd be interested to see how these new scenarios shape up.