Yes and the standard development process starts by designing a spec proposal and testing it! That's the first step. If the proposal ends up not being implemented, the implementation may be removed, but you still need the implementation to write the spec, that's more or less how WHATWG works.
All of the following are true statements:
- Not all chrome flags are related to spec proposals
- Not all spec proposals are related to chrome flags
- Not all chrome-led proposals are finalized
- At least one browser must implement and test the proposal before the proposal can really be considered, and multiple other browsers must implement it before it can be accepted.
You seem to be taking things that are factual, normal, everyday, aspects of the WHATWG working process and trying to imply that chrome is doing something unusual, or untoward with its process here, but it isn't. It's doing what is necessary to make a proposal with WHATWG: have a trial.