The game could certainly do something about enemy level balancing, but I'm not sure what the best approach to that would be. At about Level 11 last night, I made my way to the starting point of the final Fire Breathers test, I got my ass handed to me by a couple of Scorched I randomly bumped into that were were leveled in their mid-twenties and didn't realize what I was up against until I noticed my weapons were doing shit for damage. Then when I respawned and finally made my way to the test site, most of the Scorched I encountered were roughly half my level, but a few I met toward the end were about Level 16 at most.
It was doable, and I actually did die once (mostly because I panicked in the moment after running out of ammo and taking to long to fumble for another weapon, but as it stands, it's kind of hard for me to predict what level of enemy I'll run into at any given time. That may be just because I don't quite understand how enemies are leveled in general per zone, though.