I don't believe in State unity. People within the State do all sorts of things contrary to the public intereset, the State interest, even their agency interest, because it is in the interest of a narrower group (eg person vs agency, agency vs State)
Discussion
If it is true that for Tor to be anonymous they needed traffic, without traffic, i.e. Tor users, it is very easy by statistics to de-anonymize users, therefore Tor was opened to the public out of necessity.