Madden's playbook creator works somewhat in a way that you're asking for, but it is not intuitive and just sucks overall. It also doesn't work completely right. I am hoping that since custom playbooks were such a big deal for the NCAA games that the CFB team saw the state of the feature in Madden and completely redid it for the upcoming game(and I hope those changes are reflected in Madden as well).
Madden lets you add the plays to situations like 2nd and short, medium, and long. 3rd and short, medium, and long. Red zone, backed up inside your own 5, near their goal line, etc.
The issue is that you have to go to each situation and add plays one at a time. And the situations are repeated, so it isn't clear which ones are legit. For example, there are like 5 Red Zones you can add plays to. There is no differentiation in them or anything, so to be safe, you have to add plays to all 5 Red Zone scenarios.
Another drawback is the system only takes the first 30 plays you rate for a scenario and ignores the rest. This means the CPU only has access to 30 play calls in any given situation and the user is also held to that limit if they use the Coach Suggestions to call plays.
The system is just done terribly and it's something they really need to have better in the CFB game.
What I would really love to see in the new CFB game is the ability to create schemes and assign playbooks to those schemes, and the CPU would have these schemes be in their pool to have when coaches are generated inside of Dynasty mode.
When creating a scheme, if you had the ability to name it, give it a brief description, select the archetypes for it, and assign playbooks to it, then that would be huge.
To take it further, it'd be huge if you could select what concepts are the staple of the scheme and how often teams typically ran/pass within the scheme, that'd be huge as well, but that could be something controlled by the playbooks themselves and/or coaching profiles.
If I created a custom veer system and could select the concepts that the CPU would exclusively run with the playbook and in what scenarios, it would not only enhance Dynasty mode over time, but it would really allow users to create historical playbooks that would operate better than ever before.
Throw in create a play with create a scheme and an updated custom playbook system and I will be over the moon. Overhaul the entire play calling system to be more modular and open ended and then I'll buy 100 copies of the game personally.