It's more complicated than that - many can do a subset of useful things without root.
Often they can read things as a normal user - things like `apt` or `sysctl` can show you information about your current system, but will only be able to change it as root.
And even something like "shutdown" might be usable for a locally logged in normal user on a systemd system - or it might not be, depending on local configuration.
Finding things that actually always "need root" for everything is kind of hard, even discounting "print help" as a useful thing in its own right. And if you only came up with "chcpu" and "switch_root"... would you really want to have a top-level directory just for those? Plus the historical location for some things is in /sbin, so moving them out has a compatibility cost.
Tbh I find the only winning move here is not to play. There are so few binaries that are actually only useful to root that they don't really hurt in tab completion, and they could always grow non-root accessible features.