I agree but I think this line is extremely hard to define and probably varies based on your travel preferences and sleep schedule. Whatever the system is, people will try to work it—but I think step one is having resort staff actually clear unattended chairs, and perhaps saying that you can’t hold more than 2 chairs for every 1 person for more than an hour. The problem (of course) is it results in guests arguing/fighting with staff—leading to drops in satisfaction for both guests and staff.
If they aren’t willing to enforce their rules, I think it would be better to have more cubbies (for people who just want to keep stuff dry while swimming) and then they could have chairs they aggressively clear (most chairs by the pools if nobody is using them) and 50% of the chairs should be available to pay for the day (I actually think there should be a 7-12 rate and a 12:30-5:30 rate and maybe booking both gets you a 20-30% discount, or something like that).