Calling PGP an utter failure is an understatement. Just like calling a cat a small tiger.
PGP is possibly the WORST experience in usability for any well known software that ever lived.
This thing should be taught in courses for decades to come as how to fail a product by 1) having no UI 2) no integrations with anything 3) zero usability 4) not even trying to give a fuck about normal users 5) in fact, not even trying to make it possible to use for advanced users.
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You want signed email & identities. It's simple.
Just get the national government to distribute RSA USB keys to every citizen. Then they can use them on public government websites (taxes & jobs stuff) to confirm poeple's identities, just plug in the key. Quick and simple. (And that's not incompatible with ALSO asking for a password that was send in a different paper letter. 2FA-style.).
Then later, citizens can sign the emails they send to everyone with gmail/hotmail because they'll add the feature to recognize the national USB identity key, now that there are X millions people using it.