Why bake it into everybody else's Windows? If you make say a Brazil Government-only Windows which trusts this CA instead, I guarantee somebody crucial in Brazil will buy a 3rd party Windows laptop independently and it doesn't work with this CA's certificates and that ends up as Microsoft's problem to fix, so, easier to just have every Windows device trust the CA.
They'll have an assurance from the CA that it won't do this sort of crap, and that's enough, plausible deniability. Microsoft will say they take this "very seriously" and do nothing and it'll blow over. After all this stuff happened before and it'll happen again, and Windows will remain very popular.
That CA is not used for much else and is basically confined to our state. But it has to be in Windows, otherwise no other software could verify the signatures.
See eIDAS and other similar schemes.
Ukraine for example successfully operates their own eIDAS-like scheme where everything is based on DSTU+GOST algos not supported by any operating systems a major libraries, the certs are signed by the government root and it doesn't leak into web pki.