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There wasn't a consensus among the drivers about the downforce level at Phoenix. Since it was a mixed bag at the test, IndyCar decided to leave it be.
The speed or downforce in and of itself is not the issue at Phoenix; it's more a matter that they need multiple, viable lines through the corners there. At Phoenix, I suspect even the default DW12 is just too draggy to allow for a great deal of speed differential between the end of the straight and corner apex.
Even if you lower downforce a bit, the speed differential over the field still isn't that much; that differential is what led to those wild fights for position among the leaders as they were trying to negotiate traffic on the one-milers. And even then, there were plenty of those races in years/decades past that were blowouts for the winner anyway.
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