Agitprop.
"Draft guidance?"
That means it has no force of law.
Some genius in a meeting suggested that they could circulate a memo to the military, call it a "draft" memo just to put the idea out there, and then leak to the press that a "memo" (subliminally draft) was sent to the military stopping pay to the soldiers.
Agitprop...
The plan is to get people riled up about the story now, and then bury the clarification later.
-PJ
Concept "force of law" seems to escape this crew.