It's worth noting that most communications specifications that involve an encoder/decoder pair communicating over a channel only specify the encoder. Standards purposely leave the decoder open to allow systems to progress as technology develops and to allow competition between implementations. This also makes a standard simpler, as a decoder is usually more complex than an encoder since it has to deal with noise and other effects introduced by the channel. Consequently, implementing a competitive standards compliant decoder involves R&D and is not a case of following a predefined path.
I've always seen Bellard as an engineer who programs rather than a pure programmer.
It is exactly the opposite for MPEG, which only specifies the decoder (i.e. how frames should be decoded).
Maybe they meant encoding, the file format.
But that only specifies the decoder.
The format for all modern video codecs is not the kind of format where any specific piece of uncompressed input should always be encoded the same way, but more like a very restricted programming language that gives the encoder a lot of tools to compress the video, and which tools they use and how they use them are up to them.