So, if you want to be consistent with multipolygons. You need to do the following:

Rough = Outer
Fairway = Inner
Bunker = Inner
Fairway = Outer
Green = Inner
Bunkers w/ Rough Surrounds in Fairway:
Rough = Inner
Rough = Outer
Bunker = Inner

Bunkers w/ Rough or Fairway elements within their boundry:

Bunker = Outer
Rough/Fairway = Inner

Bunkers/Water that intersect Fairway and/or Rough and Natural Surface:

No clue how this will work since multipolygon doesn't handle partial relationships and intersects.

This is a hierarchy nightmare and will vastly increase query times to where overpass will never work correctly. In addition, every 'parent' line will have lost their tag. 

This supposed "standard" is unusable and obviously not though out in actual practice.