I’m not sure there’s any precedent for making this particular distinction. goods=* is complementary to hgv=*, not a superset of it. The ordinance doesn’t seem to distinguish between tractor trailers and vans. Maybe another option would be to tag the truck routes as hgv=designated and the commercial delivery routes as merely hgv=yes goods=yes. I don’t know of any mainstream routing profile that distinguishes between yes and designated, but I suppose yours could view designated as more emphatic.
I have a feeling that you’ll encounter many more local ordinances along these lines that will be more difficult to shoehorn into existing global tags. hgv:local_network=* may be unused so far, but it fits the pattern of other hgv:*_network=* keys, so keep it in mind for the future.