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Right now https://drafts.csswg.org/css-images-4/#image-set-notation says:
If not specified, it behaves as 1x for the purpose of selecting which to use. It also defaults the image’s natural resolution to 1x, but if some other source of data supplies a natural resolution, that resolution must be honored instead.
That doesn't seem to match implementations, which apply the scaling on top of the natural orientation of the image. See whatwg/html#5574 (comment) and previous discussion.
cc @noamr