Just want to draw your info sources out here, Ford, so don't take this wrong. Who is "HD Radio", and how did you determine what it's (their) "goals" were?
The problem with this thinking is that it doesn't recognize the economics of the technology. Going to HD is a major up-front expense, which (I believe) few broadcasters, if any, have recovered from original programming.
Relatively few people have been motivated to buy into HD, regardless of the programming. Rather, the younger listeners have put their major investments into other means of delivery.
On the other hand, using the HD channels to feed translators that the majority of FM listeners CAN currently hear gives the broadcasters a way to justify their investments a whole lot faster than they ever will if they wait for the listeners to catch up.
Who's right pretty much depends on what side of the fence you sit on... much like politics.