It sounds like you think it is quite consequential which of the approaches is taken here, and that for Bluetooth and USB a test-only API is the best place to start. That makes sense, and I didn't mean to imply that Bluetooth and USB are cases where "the size of the [WebDriver] API would be moderate."
I'm not really happy in general with waiting until another vendor approves of the test API before sharing tests, as we don't block on the specs themselves having multi-vendor buy-in before writing tests. If we always did, then chances are that when people asked us to upstream the tests, nobody would have the time for it.
I hope that once we've proven that test-only APIs work in some area with multi-vendor interest, then things will go more smoothly for new and experimental things.