Proposed resolution:

This wording is relative to N4917.

1. Modify [ranges.syn] as indicated:

   #include <compare>              // see [compare.syn]
   #include <initializer_list>     // see [initializer.list.syn]
   #include <iterator>             // see [iterator.synopsis]
   
   namespace std::ranges {
     […]
     // [range.utility.conv], range conversions
     template<class C, input_range R, class... Args> requires (!view<remove_cv_t<C>>)
       constexpr C to(R&& r, Args&&... args);                                          // freestanding
     template<template<class...> class C, input_range R, class... Args>
       constexpr auto to(R&& r, Args&&... args);                                       // freestanding
     template<class C, class... Args> requires (!view<remove_cv_t<C>>)
       constexpr auto to(Args&&... args);                                              // freestanding
     template<template<class...> class C, class... Args>
       constexpr auto to(Args&&... args);                                              // freestanding
     […]
   }
   

2. Modify [range.utility.conv.to] as indicated:

   template<class C, input_range R, class... Args> requires (!view<remove_cv_t<C>>)
   constexpr C to(R&& r, Args&&... args);
   

   -1- Returns: An object of type C constructed from the elements of r in the following manner:

   […]

3. Modify [range.utility.conv.adaptors] as indicated:

   template<class C, class... Args> requires (!view<remove_cv_t<C>>)
     constexpr auto to(Args&&... args);
   template<template<class...> class C, class... Args>
     constexpr auto to(Args&&... args);
   

   -1- Returns: A range adaptor closure object ([range.adaptor.object]) f that is a perfect forwarding call wrapper ([func.require]) with the following properties:

   […]

The intention of ranges::to is to construct a non-view object, which is reflected in its constraint that object type C should not model a view.

The specification allows C to be a const-qualified type which does not satisfy view such as const string_view, making ranges::to return a dangling view. We should ban such cases.