I don't think the problem was so much skaters doing solo 2A as required and 3A in the jump combination.The short program (technical program) , by intention, was created as part of the move away from compulsory figures. In figures, every skater traced exactly the same patterns and then the judges decided who did it best. Free skating meant free – do whatever you can. The Zayak rules, and the later “balanced program” rules under the IJS, came in to prevent competitors from just concentrating on one skill repeated over and over. The triple Axel did pose a dilemma – at one time the riles permitted and encouraged a skater to do a double Axel for the required “Axel type jump” and then a triple Axel/double toe for the required combination, thus loading up on Axels contrary to the spirit of what the short program was all about.
In the 1970s and 80s, the solo jump was always a specified double jump preceded by steps or other skating movements, and one of the jumps in the combination was a specified double jump.
As of the 1989 season, the requirements were loosened up so that skaters could choose which takeoff to use for the jump out of steps, and which takeoffs to use for both of the jumps in the combination. For men, all these jumps could now be triple; for women, only one of the jumps in the combination.
The problem came a year or two later, when several men chose to do the same triple jump both as the first jump in the combination and also as the jump out of steps. A few (I believe Browning, Eldredge, Petrenko, and Stojko) chose to do 3A combination and also 3A as the solo jump, as well as the then-required double axel. (And Wylie was doing 3Lz+2T and solo 3Lz. There may have been others as well.)
That was what was considered overloading on axels and led to the rule change that forbade using the same jump in more than one SP jump element, which is still in effect.
True.As years went by the distinction between the two programs became increasingly blurred – raising the question of why there is a short program at all. The best justification seems to be so that skaters (and audiences?) won’t get too bored during the season just preparing and refining one program over and over.
There are still stricter requirements in the SP than in the FS, but the distinction is much less clear than earlier in the history of the SP. Or, for that matter, the history of the well-balanced free skate.