I am probably looking at this too simplistically. If so, I'm sure someone will tell me why my idea won't work.
Why not have a three-tiered band plan based on signal bandwidth? In other words, reserve some part of each band for really narrow modes, like CW, reserve another part of the band for wider modes, like up to 2 kHz, and then allow unlimited bandwidth signals (or maybe limit this to 8 kHz) in the rest of the band. Granted, some bands, like 30m, where phone is not allowed, may require additional restrictions.
My thinking is that limiting emissions based on emission designator (CW vs. phone) or limiting emissions based on data rate stifles innovation. If someone comes up with a high-speed data mode that uses the same bandwidth as CW, why should that mode be forced higher in the band or prohibited all together just because the data rate exceeds arbitrary limits? Likewise, digital voice modes, like D-Star, are questionably legal on the HF bands, but, if the only limiting factor was signal bandwidth, D-Star could be used in my proposed 3rd tier without restriction.