Proposal
PROPOSE communicates a proposed change, Configuration, agreement, Formation, Commitment, Pathway step, or other prospective action without creating the authoritative consequence being proposed.
Specification-sourced: quoted from the governing specification, pending the applicable specification-owner approvals. The specification controls.
In plain words
A proposal is not an agreement and is never treated as implicit consent. Depending on its semantics a proposal may be operational or derived; either way, the change it proposes takes effect only through the corresponding authoritative operation.
What it is not
Proposal ≠ Formation
A Proposal communicates a prospective Formation without creating it; the Formation exists only after a governed establishment transition. Configuration Is Not Formation · Canonical Model & Protocol (source: 04 §12.2)