That's because completion of discussion has never been a requirement for writing a PEP.
Not for drafting, but for submitting.
Can you quote pep1? I think you’re wrong.
In general pep1 is frustratingly vague. Terms like “community consensus” without defining community or what numbers would constitute a consensus are not fun to read as someone who doesn’t personally know anyone of the core devs. Further references to Guido are even more frustrating now that he’s bowed out.