If we're optimizing for the cyclist's safety wrt a "pack" of cars, they themselves should pull over and wait for the "pack" to pass. Otherwise, a driver doing their best to clear the hazard as quickly as possible is the ideal compromise. A cyclist that is impeding the natural flow of traffic with a slower speed than is normal for the road is a danger to himself and others; any individual driver cannot account for the behavior of other drivers, particularly those who might drive recklessly if impeded by others' attempts to wait out a slow cyclist. Your protocol increases the danger, per likely factors.

The other wrinkle to this is that, outside of cities, cycling in America is a luxury sport. The people who partake in it are most in the position to force changes to infrastructure that supports safer cycling. NJB and other similar commentators make it clear that infrastructure improvement, not changes to driver behavior, is the most efficacious way to imrpove cyclist safety.