Revise how skills working on draft coordinate - more direct, more deterministic, more YAML

https://github.com/galaxyproject/foundry/pull/317 added this ledger that is threaded through a pipeline and I think it makes sense but part of the work was also allowing step implementers to propagate design issues back up a level and I think I don't love using the ledger for that. The draft workflow should have root TODOs I think that resolve this.... maybe. That way the "next piece of work" step is definitive. Maybe the find tool Mold should work the same way - do its best to find a tool - plugin the ID - and then hand back the draft and let the implementer do the work. If it records it cannot find a tool - it should record that in the draft and then the hand of to a tool creation agent would be deterministic also.