I would have picked keep the status quo and review the need for towers on an annual basis and when it seems an untowered airport needs a tower or a towered airport no longer needs it use input from ATC, the pilots who use the airport, the airport management, and the community to help make a decision that is determined by those who use the airport.
I think we all can agree that there are some airports that have towers that do not necessarily need them and there are some airports that do not have towers that may be better off with one, and that what is applicable today may change tomorrow.