Well, true, you shouldn't entirely blame Intel, as a lot of the blame lies with the OEMs, but Intel could, and should, apply more leverage on the OEMs to ensure they're using their chips properly. Essentially, like they're starting to do with Evo, but extended, or separately, to ensure they meet certain minimum performance requirements, e.g. not having them perform like some laptops NBR has reviewed where they actually do throttle the chip.
And it does make perfect sense to consider boost as the base, as that's exactly how CPUs have worked for years with Speedstep and Speed Shift. They have a max frequency, which is what they're rated at, and they can, and do, frequently change frequency (so lots of switching is going on, and yet battery is saved because even if the switching uses a hair more, energy is saved by running in the lower power states) to lower speeds. This is why I say base/boost sounds more like a marketing team at work, because it's simply the inverse situation, where instead of running at, e.g., 4GHz all the time and stepping down to 3GHz/2GHz/1GHz, it runs at say 3.8 and boosts to 4.5 and steps down to 3/2/1. So in this example, it can go faster, but only very briefly, otherwise runs at a similar or even lower speed, and still steps down.
My point was that no matter how you look at it, it's jumping all over the place, and either way it's spending most of the time at lower frequencies to conserve battery when idling or under a low workload and when stressed it ramps up, whether to its normal/rated speed or, briefly, to a boost speed, then back down to its normal/rated speed. Either way, it's doing essentially the same thing, but calling it a boost does two things: it makes it sound better, and it allows the use of a higher number because it doesn't have to be able to sustain that, even for a minimum amount of time. Most consumers are going to prefer a 4/4.5 base/boost CPU than a 4 or even 4.2GHz chip, even though in many cases the former wouldn't be able to sustain the boost long enough to make much difference. In either case, when worked they're both going to be roughly the same, with the former being slightly faster for a few seconds initially (and yes, I realize this can sometimes make a difference, but it's almost always going to be very minor), and when the work is done they're going to throttle back. Only the former is going to scale up (using more power), do some work for a few seconds before getting hot and scaling back down (using more power) and running at (roughly) the same speed as the latter.
And as far as I'm concerned, this is no different than calling it a 4.5GHz CPU that throttles down to 4GHz due to heat, only as far as marketing goes that would go terribly, since people would be upset that their 4.5GHz CPU almost never actually runs that fast. But functionally speaking, it's the same thing. When it comes down to it, it really doesn't matter which way you look at it, it matters what speeds, and for how long, the CPU is capable of, and how fast that allows it to perform a certain workload, and how much this chews through the battery. And both Intel/AMD and the OEMs play a role in this.
That's why I personally would never buy a laptop solely based on the CPU, but I look at how fast it performs certain tasks (particularly H.264 encoding, as that's a good, consistent real-world benchmark, though frankly they've gotten so powerful I don't even really look much at performance anymore) and how the battery life is, which is why I like NBC reviews, since they have the best system I've seen for that. So I can just look at the system as a whole, with the CPU and its implementation, i.e. cooling/drivers/OEM throttling/etc, and see how it performs and how long it lasts. The problem is that I can at least look at certain systems (i5/i7/R5/R7, AMD > Intel & Ice Lake > Comet Lake) and ignore others (i3/R3), but with Intel muddying the waters (even more), the concern is even doing that will become problematic, as there will essentially be steps within each that will be hidden, instead of i5/15 and i5/25, it will be i5 and i5, with no discernible difference without doing some digging, which most people can't or won't do. Of course, as I said, you can still just look at reviews to see how the performance and battery life are and compare based on that, which is, IMO, the best way to do it anyway, but that doesn't make it any less bad how they're making a mess of it all.