I don't think it's as big a deal as people make it seem on these forums. On my old commute route, there is a long stretch of expressway with only a handful of lights. It was fun riding in the makeshift pelotons that form.

The question of "to draft or not to draft?" is only relevant for a self-selecting group of cyclists, anyway; there is no point or joy in drafting someone going way slower or faster than you are. A lot of the time I either pass or get passed. Sometimes when I pass, someone hugs my wheel. Sometimes when I get passed, I gauge whether I would want to hug onto theirs.

On the occasion that a group of similar-speed cyclists bunch up at a light, I am happy to participate in the pace line. In my experience, people typically exercise good judgment when deciding who is draft-able. I stay away from squirrely riders. But I don't care who wants to tag onto my wheel since the risk is on them.

I haven't met anyone on the road who objected to the behaviors described.