Graphene isn't a ROM, it is a standalone mobile OS based on the Android Open Source Project. So yes, Google primarily develops it, and has de-facto control. But Graphene is actively working to change that, especially with partnering with OEMs so that they can increase device driver support and give more devs incentive to work on AOSP/Graphene in general. For mobile devices the device drivers are huge, unlike desktop/server linux where MOST (obviously not all) things work.
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