OK after a bit more reading around I have a better idea about what the badges are and how they work.
One thing struck me - I happened to look at the badges for tools. Starts off with the sand badge, which is composed of basic tool maintenance badge bits: sharpen a knife, sharpen a hatchet, sharpen a chainsaw, etc.
This got me to thinking, and tied in with the people who say "but I can't do X because" - now, some of those people are just not looking at creatively enough; they could find a way to do things if they put their mind to it - let's say, cleaning a freezer: perhaps they don't have a freezer but their elderly neighbor does, and they could see if that neighbor needed help cleaning it - some of these issues can be solved with a bit more thought.
But there's a risk of insuperable problems: Let's say the chainsaw - someone not only doesn't have a chainsaw, they also don't know anyone who does because nobody in their area needs one, so they can't sharpen a chainsaw, even if they are willing to learn how.
Those people are going to look at the "tools" sand badge and right away they're going to see a problem, and it's a problem they have no idea how to solve.
That could put them off the entire thing; yet they may well have a shed full of other tools.
So my suggestion is this: I read in the what is PEP/PEX thread, PEP 1 you require any 16 sand badges - which is cool. You don't have to get all the badges in a given category, you can mix and match with what you can do.
How about if the individual badges worked the same? Taking the tools one again, there could be, oh I dunno, maybe 20 tools-based badge bits and to get the badge you have to complete any 16. Set it so most things have to be done, so it's not a shortcut, but have a little wiggle room.
'course, I'm late to this party so might be it's already been discussed, if so I apologise for flogging a dead horse.