That's good point. Of course, there can be some differences in the CO2 concentration throughout the tank. As T.Barr already pointed out in barrreport.com, at filter outlet the CO2 concentration is much higher then in other parts of the tank. And in plant beds it may be even lower, as the water is hardly moving there. But that's the case even in the natural rivers. So if in some rivers with lush plant vegetation the CO2 concentration is 10 ppm in the main flow, then at the plant beds the concentration will be much lower.
Besides, right now I have Rotala wallichii in one of my tanks, where I use about 15 ppm CO2. Amano also did grow Rotala wallichii under 9-12 ppm CO2 (according to his Nature Aquarium World books). Jason Baliban also did grow many plants under 10 ppm CO2 and low nutrient levels in water column (with nutrient rich substrates). So it's perfectly possible to grow even the most demanding plants under relatively low CO2 concentration. Of course, if you want maximum growth rate (100%) you are better to use 30-40 ppm CO2, but if you are fine with 50-90%, then your plants may need only 10-15 ppm. I think there's not much difference between 10-15 ppm vs. 30-40 ppm. Personally, I don't prefer all my plants to grow like mad, so that I need to trim them each week or two. I feel better when my plants grow rather slowly, and I don't need to care of them so often. Most aquascapers would prefer slower growth ... once all plants are in the desired shape. Most plant sellers (e.g. T.Barr) prefer faster growth to sell more plants and make more money.