That is actually quite a cool idea, now that I understand it better.
So it would go something like this? At the beginning of the season the ISU would hire an impartial team of choreographers to come up with two choreographic templates, one to Swan Lake and one to Carmen. The basic shape of the program would be set, together with the placement of the elements. Maybe there would be one edge jump in combination (3Lz+3T down to 2T+2T for seniors), one edge jump (loop if you have it, otherwise Salchow), and one Axel. Similarly for the types of spins and for the steps and turns in the footwork
Maybe you could do a spread eagle OR an Ina Bauer, and a split jump OR a Charlotte.
There would be no marks for choreography, interpretation, or transitions, but there would be a score for skating skills and performance/execution as well as base values and GOEs for elements.
Over the years you build up a library of these programs, which could be repeated, rotated and modified as need be. We could compare the Carmen #5 programs of skaters from different seasons and different eras, and children could study and emulate the Great Performances.