Why would the NPCs all split up that way? They know not to split their forces, the same way PCs try to avoid that. In essence, the NPCs have to "weaken themselves" to the PCs' levels to lose.
In your example the enemies with ranged weapons fire away while the others chase the PCs. Now when the PCs turn around they can gang up on the melees that followed them while the archers suffer heavy penalties. The PCs can also more easily use magic or items to separate the enemy force
It's a rules problem impinging on player psychology, since not all systems have AoOs. That issue just doesn't come up there. (The same issue affects the use of things like bull rushing someone into a pit trap. People without Improved Bull Rush don't do it, due to fear of AoOs, even if the damage they could do is higher than stabbing would do.)
Players also fear that their characters die, so is it the systems fault that the PCs can take damage?
When the PCs do not use a option, especially one which is so easy to use or has such a low cost then the only one at fault are the players.
The system should not need to cater to players without even a basic grasp of tactics or chances in order for something to be viable.
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