If you want to say "hey people, I'm trying to come up with something, but I don't know how and what exactly, let's work on this document under XSF IPR policy", you don't need to make it Experimental. You can just say this and avoid any doubts on whether your XEP is encouraged for Experimental implementations or not. And if you think we need a venue that is explicitly under XSF IPR policy but not ready for experimental implementations yet, then talk to the board.
But... that *is* Experimental... Experimental doesn't mandate implementation, it merely encourages it. And you can implement this, not that it's required, and I have, not that I had to. Experimental doesn't even require implementable.
The Process we have literally doesn't have a stage before Submission. So you're asking, as a Council member, that I should NOT follow our process as documented in XEP-0001?
Dave.