Pay to play does work. In metropolitan areas it will always be an issue due to the lack of land available. In Madison, WI Vallarta Token Creek is a pay to play that doesn't seem to have the same overcrowding issues as the other two city courses. You'd be lucky to have to wait less than fifteen minutes per hole on any weekend afternoon at the city courses. Standing Rocks park is a pay to play near Stevens Point that is never crowded. If I head to YULGA to play in the afternoons, I end up waiting more than playing.
I'm not arguing the fact that those two courses are less crowded than others nearby, but it might also have something to do with their being off the beaten path. It's a bit of a drive to get to them, especially Standing Rocks. So I'm not sure their "undercrowdedness" is totally due to their being pay to play. Did I just make up a word?