From the point of view of the RISC-V architects the "users" are the chip designers who are engaged in a sort of build-your-own-instruction-set situation, and this kind of makes sense, but does contribute to it being a mess.

They are absolutely in denial as to the downstream effects of this on the software ecosystem. Android, for example, for native support had enough fun dealing with relatively few ARM variants (and x86/MIPS etc), and identifying chip features at run time was reliant on the board support software getting it right (hint: it didn't).