call/cc does not actually use the passed in function to determine how any action should be done. All it does is provide a capture of the current continuation as an argument. That's it. So it's not a strategy, it's just a HOF.
And semantically, a continuation is pretty much never a strategy.
As for make-counter not being higher-order, that's just not true. A higher-order function takes and/or returns a function. make-counter returns a function: it's higher-order.
Callcc can be implemented as a function, no continuation primitives needed. Haskell has examples in its libraries.
Lastly, regarding semantics, I see no difference between Strategy and a second-order HOF. Yes the scope of Strategy is supposed to much more limited, but I don't see value in this. I concede that others might do.