Hi Kristan,
When creating a new template, it should reflect a project's work plan. If the project's workplan have items that are in "Draft" mode and then you save the workplan as a template, creating new projects from that template should have "Draft" state for the items. If the template was created from a project's workplan with active state, it will be active. So in other words, you would need to have the project workplan as draft first and then save the template so it will reflect. Hope this helps.