I guess I need to clarify... again...

When I say that Garlemald... whatever, I'm not talking about individuals. Individuals can dissent and disagree with what their country does; we know that not everybody in Garlemald agrees with the direction it's taken since some number of the theater troupe, the Populares, and Cid all disagree with the Empire's more oppressive policies. To say "Garlemald [X]" is to speak of it as a collective society, i.e. Garlemald decided to place supreme executive power into the hands of one man (the Emperor).

As a collective society, it still thinks what it's doing is acceptable - if it didn't it would change. There may be (likely is) wool over the eyes of the common folk, but even if there isn't they don't have any real power in their government. That's the society Garlemald wanted. That can change, but someone like Varis - someone who believes only he knows what's right and best - isn't going to give up his power willingly.

Does Varis serve his people or his ideals? If his people wanted change would he cede (or even listen) to their wishes? Those are the questions that need to be answered about Varis before any talk of him turning a new leaf can really begin, and as long as he holds supreme executive power Garlemald is along for the ride... unless it wants to start a civil war.