Generally speaking, the community determines what work items are needed.
It can sometimes happen that the initial set of proponents want a
smaller set of work items, but the rest of the community believes that
an additional work item is also needed. (E.g., applicability statement,
security analysis, etc.)
Obviously we need to worry about finding contributors to do all the
work, but at the end of the day, finding an acceptable charter is a
package deal: the community, the IESG, the main contributors, customers,
etc have to be reasonably happy with overall result. Someone may not get
everything they wanted to, and some others may have to do more work than
they had planned, but that's natural in any consensus driven system.
Jari
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