I'm thinking we structure the layers into "composites".  Each
composite contains some conductor/insulator layers, including other
composites, and an overall shape (outline, drills, slots).
Thus, a drilling operation is stored as a single "drill" object in the
composite's outline layer, and buried vias are just drills on a
sub-composite.
The heirarchy of composites represents the manufacturing process, so
implicitely defines the possible blind and buried vias - you either
drill through a composite or you don't.  If a composite happens to
represent copper layers 4 and 5 and the insulator between them, you
get a buried via.  If the composite is layers 0 and 1, you get a blind
via.  If it's the top-level composite, you get a regular via.  Etc.