Led by a core of Chaotic Evil people. "Invade Russia!" "Exterminate the Jews!" all starts to scream CE over LE at the leadership level.

Eh, that's like almost all leaders though.

"Give me liberty or death!"

"Invade Mexico!"

"Assassinate Castro!"

"Go to the moon!"

When you're the one (at least in part) making the laws, it's hard to distinguish your decisions been between chaos and lawful.