I think part of the problem is "what is an OS utility" and "what is an app". All your OS configuration could be done via a REST API, text files or some other well defined protocol. So you could have competing configuration apps that all help you manage your config in their own way and unbundle the control panel. Realistically looking at your average sparse linux distro shows just how "minimal" an OS can be, and even they bundle applications. Yet, I realistically don't thing consumers or the tech market at large would be assisted by a law mandating that all operating systems be as minimal as the linux kernel (no GNU/Linux, that's bundling!). And even if you did go that far, now we get into arguments over monolithic kernels and micro kernels.
I think part of the problem is "what is an OS utility" and "what is an app". All your OS configuration could be done via a REST API, text files or some other well defined protocol. So you could have competing configuration apps that all help you manage your config in their own way and unbundle the control panel. Realistically looking at your average sparse linux distro shows just how "minimal" an OS can be, and even they bundle applications. Yet, I realistically don't thing consumers or the tech market at large would be assisted by a law mandating that all operating systems be as minimal as the linux kernel (no GNU/Linux, that's bundling!). And even if you did go that far, now we get into arguments over monolithic kernels and micro kernels.