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The spec says: "Note: HTML forms and URLs require non-terminating encoders and have therefore special handling ..." but it isn't specific enough to know what should be done. Either be more specific, or provide a pointer to where that's specified (or say it's not yet specified currently).
So for HTML it is specified, but not in terms of the Encoding Standard. For URLs it is specified in terms of the Encoding Standard, but we may want to change the exact handling for URLs. (Currently you get "?" in URLs whereas some browsers give you "&#{decimal code point};" instead like you get for HTML forms (in all browsers).) I have been thinking about getting everyone to unify the two behaviors so an encoder error would always emit "&#{decimal code point};" unless you terminate on an encoder error.
*** Bug 19940 has been marked as a duplicate of this bug. ***
I forgot about this bug and fixed it elsewhere. *** This bug has been marked as a duplicate of bug 23103 ***