Hi Richard,
I believe that this is mostly due to plugin development happening to satisfy a plugin need. I doubt there is a grand unified vision for plugins. And I don't have one either. I've dabbled with codegen plugins a long time ago, these days I'm primarily concerned with plugins having a chance to work in cross compilation settings, and even that is still a very uncharted area, but Luite has come up with a hack and Sylvain is making progress :-) We still don't have the cabal side fixes, where we'd need some `plugin-depends` stanza, but all that only makes sense, once we have the fundamentals for plugins disentangled in ghc.
I agree that a discussion on discourse might help. But we won't know without trying.