No doubt, you can use csv in a well defined way if there is agreement and specs. The problem is there simply isn't any defacto standard and it won't be able to establish one in this domain...
Btw. : The python intake package allows you to specify metadata.
RFC4180 is an after-the-fact RFC to try and codify common practices in the industry so some tools may refuse to conform to it - but it's really clearly written and like... super short. If you've never read it just go ahead and do so since it lays things out with exceeding care.
item1,item2,,item4,,,item7
For a improved CSV, that minutae must be defined from the start, but also must take in account how is CSV used, and keep it spirit.
P.D: A example on something like this is https://commonmark.org, that codify the rules for markdown in a better defined speck.