Yeah, many countries are trying to launch their own cbdcs, But its never and ever overtake bitcoin.
They have no such task as surpassing bitcoin in some properties and features. They do it for other purposes, to control and dominate their crypto products in the digital field. Since the crypto industry is developing at a rapid pace, central banks will not miss the opportunity to carve out their niche there, where they will have complete control over their tokens. Governments and bankers do not really like the idea of decentralization.
can anyone start a crypto exchange without bitcoin ?

Dozens of such exchanges have already been launched, they have multimillion-dollar trading volumes, and they do just fine without bitcoin. They are called DEX.