I've given this some more thought and remain persuaded that the conceptual idea of a draft report is a benefit and not a detriment.
I acknowledge the abuses that took place pre-USPAP. But we have USPAP now. As I said earlier (and as I think Danny's last paragraph above confirms) there are those who are going to violate USPAP regardless of what it says or no matter what its intent is. The Ethics Rule clearly states that assignment results, no matter how they are communicated, cannot be done in a manner that is misleading or fraudulent. All other provisions of the USPAP's ethics are in force for developing those results.
If the conceptual idea of a draft communication is beneficial, then the issue is what is the best method to introduce it, and if introduced, what are the concerns that should be addressed prior to its introduction?
Is it better to introduce the concept of the draft report by rewriting SR2 or by altering the definition of what a "report" is and expanding it to include what a "draft report" would be? For me, I don't have the issue with making the differentiation in the definition.
There are two basic parts of an appraisal assignment: Development and Communicating the Results
The analysis goes through the SR-1 machine. The communication goes through the SR-2 machine:
A
report that goes through the SR-2 machine comes out with a signed certification and falls into a bucket that says it must be retained as per the Record Keeping Rule.
A
draft report that goes through the SR-2 machine comes out with a prominent label that it is a "Draft", does not have a signed certification, and doesn't fall into the bucket with the Record Keeping Rule.
Do we need to create two SR-2 machines in order to make sure that a report gets its certification and is subject to record retention requirements and to make sure that a draft doesn't get a signed certification, is prominently labeled as a draft, and isn't subject to the Record Keeping Rule?

I wouldn't think so. But, if that is the only roadblock (which I know it isn't), then OK. Let's write another communication rule so one gets its signed certification and is kept, and the other gets a prominent label identifying it as a draft, no signed certification, and it is not subject to the Record Keeping Rule.
The enforcement aspect (for me) is the serious challenge here. I would think there are practical means to eliminate any conflict that a draft-report concept would create with a state law (I believe that many states incorporate the USPAP by reference, so there shouldn't be any conflict for those states unless their regulations go further). If the concept of the draft report is going to be adopted, I'd rather wait to ensure it can be introduced to eliminate the contradictions with state law and with minimal disruption to the enforcement process. If that means waiting another 2-years, I'm fine with that as well.