Depends on his intent. If, like you say, he has only one tough house nearby and it's not practical to drive further, then that's his average and it's OK. If he's only bowling at the one tough house to keep his average low in order to clean up at handicap events, he's a bagger. Unfortunately, it's almost impossible to tell unless you know the guy. To an outsider, he'll look like a bagger no matter his intent. He obviously has the ability to drive to the handicap tournaments where more money is on the line, so he's kind of borderline.
If I were bowling handicap events, and some guy beat his book average by 25 pins per game every time, I'd either ask to have him re-rated or I'd stop entering every event he attended and let the tournament director know why.
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Telling it like it is.