It can but there is a process to follow and the process might take time.
It is the same with Russia conscripting and officially threatening to use nukes. Of course they could and they did, but in order to do so they first had to officially declare the annexation. Otherwise there was no internal legal basis to conscript since Russia officially was not at war, it was a "special military operation". They could have also gone the alternative route of changing the laws. Or the alternative route of officially declaring war as an aggressor from the beginning.
Same for official nuclear saber rattling, their official nuclear doctrine only allows defensive use and, before annexation, Russia could not claim anyone was attacking it. Before annexation, threats of nukes only came from TV people not high ranking officials.
No matter how democratic or repressive a regime, no ruler rules alone. Therefore even in the most authoritarian regimes there are processes to go through in order to achieve certain objectives. Different processes have different costs and risks. Those processes have steps with each step facilitating the next ones regardless of whether they are eventually taken or not.
This bill is just one of those steps towards dystopia.