Technically maybe, but not necessarily. This is tactic that executives use all the time to force their employees to do illegal, or unethical actions, without ever telling them to.

For example, Wells Fargo executives didn’t tell their bank employees to commit fraud, but they set their sales targets such that the ONLY way to reasonably achieve them was to defraud their customers.

However, I didn’t read the actual white paper, so maybe it does explicitly say backdoors need to be built.