In my original answer, I offered a work around that does not work any longer: If the file to be downloaded is not on the same server, the attribute download does not work. The problem is that the attribute download does only work when the file to be downloaded is on the same server of the tab. Others have faced this problem too and the problem is extensively covered at Chrome Download Attribute not working.
Original answer:
There is a difference between loading a file and downloading a file. The following html code loads a file:
<a href="http://www.fbi.gov/top-secret.pdf">loading on the same tab</a>
After clicking on this link, your current tab will be replaced with the pdf-file that can then be downloaded. On right-clicking on this link, you can choose the menu item save link as for downloading the file directly. If you wish to obtain a save as dialog on clicking on such a link, you might want to take the following code:
<a href="http://www.fbi.gov/top-secret.pdf?download=1">save as...</a>
Your browser will download this file immediately if you choose to use a download directory in your options. Otherwise, your browser will be offering a save as-dialog.
You can also choose a button for downloading:
<button type="submit" onclick="window.open('http://www.fbi.gov/top-secret.pdf?download=1')">
save as...
</button>
If you wish to load the link on a new tab, you take
<a href="http://www.fbi.gov/top-secret.pdf" target="_blank">loading on a new tab</a>
A form element does not heed the directive ?download=1. It only heeds the directive target="_blank":
<form method="get" action="http://www.fbi.gov/top-secret.pdf" target="_blank">
<button type="submit">loading on a new tab</button>
</form>