The unit needs to be closed loop - speed feedback at a minimum, and preferably current loop control.
That allows full torque down to very low speeds; it's how machine tool servo drives worked prior to brushless motors being introduced.
The speed feedback can come from armature voltage sampling, for the back EMF - but that's not very accurate as it is somewhat load dependant.
A DC tachometer is used for high accuracy and can give better than 100:1 speed control range.
From a quick search, PWM with back EMF feedback is often used for model railway speed control.
That in turn brings up this - a design in Silicon Chip magazine, in an old issue backed up on archive.org
It is a big file and takes a few minutes to download.. See page 19.
That covers the details of how such a system works.
An industrial drive typically has two separate feedback loops. The motor current is controlled by the inner loop which compares motor current with a current setpoint signal, with the setpoint to that from the speed loop which compares the speed feedback signal to the commanded speed signal.
Both loops use some combination of PID elements.