I actually agree with you. She made it pretty clear while she believed harsher penalties may be justified, she said she couldn't see how she could do it....
"While it may be entirely appropriate to more severely discipline players for non-violent sexual conduct, I do not believe it is appropriate to do so without notice of the extraordinary change this position portends for the NFL and its players,"
That's why the report and its findings are so important. The devil is in the details.
