This is right, in many cases flags are supposed to control specific launches ("flag-flip") or being a developer shortcut rather than giving users meaningful choices.
It's largely an artifact of trunk-driven development. Everything is behind a feature flag. The benefits of this approach vastly outweigh the drawbacks IMO, but one of those drawbacks is that you tend to end up with large numbers of dead codepaths behind forgotten flags, because cleaning up old flags becomes a multi-stage process, with no incentive to follow through but your team's "standard" processes (that probably nobody's checking on) and your own desire to keep things tidy.
Or there might be hundreds of on-going genuine launches/experiments. There are literally thousands of engineers in the Chrome org and each launch usually takes several quarters thanks to the nature of being a customer facing platform.
