Without literally embracing the Chaos Gods, it would be hard to imagine a human kingdom better designed to feed and grow them than the Imperium is. All of the violence and repression literally gives them life, and billions of under-citizens with no way out turn to Chaos out of desperation every day.
Whatever the Emperor's intentions it's clear he's failed massively in reducing the spread of Chaos and/or creating a functional society. I guess you could say he hasn't literally bowed down to the Chaos gods but he's done everything short of it.
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