All of them are complicit. You only need ~50 greedy sociopaths to work at Persona, and 10,000 dumb-as-rocks engineers hyped to work at Microsoft/OpenAI and "stop the bad guys" or whatever the boogeyman du-jour is.

We saw it with Bitlocker, we saw it with Client Side Scanning, we see it with Salt Typhoon. Most people that work on weaponized surveillance systems are entirely apathetic, or see themselves as righteous. Even when the system is known to be bugged, obviously flawed, or outright controlled by a foreign adversary.