Yeah for a kill switch the state would need to pursue all of the telecos big and small. IP address allocation is one of the main issues. If the state was able to get all of the Tier 1s, and all of the last mile providers to disable their IP allocations it could happen. Turning circuits up/down and disabling addresses isn't easy it can be very complicated circuit to circuit. Not to mention it would be an enormous amount to address over vast topography with many devices not accessible remotely. It would be incredible.

What most people call the kill switch is service quality degradation, or scare stories about what if.