If the States' proposed remedy was what they had to follow, they would have no choice but to test every configuration or stop shipping the product. The difference would be an infinitely increased testing routine where any broken functionality in a third-party solution, even if caused by the third-party, could count against Microsoft as a violation, and open them up to even greater pentalties.
The States want them to remove their functionality so that it can be replaced by third-parties while still keeping Windows functioning exactly the same as if the Microsoft functionality were still there. They want Microsoft to support this. This is a technical impossibility. One example I used a while ago (referring to another article) was HTML/XML. Browsers can render differently, even if given the same code, and some browers are less feature complete than others. If a third-party browser component misrendered a help document, or part of the GUI, this could be viewed as a situation in which Windows is degraded functionaly. Even though this would not be Microsoft's fault, they could be held responsible.
Another example I used previously was the way DirectX and OpenGL function. Hardware vendors write drivers to accelerate rendering in hardware, but Microsoft also provides a software implementation of the renderer. When an app needs functionality not supported by a third-party, it either doesn't utilize the unsupported feature, or it falls back to the Microsoft-provided renderer. If the Microsoft renderer weren't present, the app would fail. What the States want Microsoft to do regarding Windows would be like forcing them to remove the Microsoft software renderer, yet still, somehow, keep apps that utilize features unsupported by third-parties from failing or incurring any reduced functionality. This simply can't be done.
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