I wonder if it's not Afghanistan, Iran or any of the usual suapecta but actually Canada. We've got a puppet federal government submissive to US demands.. A small number of large NSA friendly telcos that reach a large majority of the population, and a large number of immigrants from all over the world. Perfect testing ground for such a system.
The goal is too record everything which means implementing programs like this in as many countries as they can. Actually identifying which countries such programs are currently operating in would be tricky without a leak. It's a real shame this article didn't publish it.