Windows Pip module uses pip from salt instead of local installation

Description of Issue

In the documentation for salt.modules.pip here, it states that:

Specifying the cwd and bin_env options ensures you're modifying the salt environment. If these are omitted, it will default to the local installation of python. If python is not installed locally it will fail saying it couldn't find pip.

However, the opposite is happening for me. If I do not specify bin_env, then it will use the version of python/pip bundled with salt instead of the local installation.

Setup

Master running on a linux server VM, minion running on a windows VM.

Steps to Reproduce Issue

Install python onto the windows VM, for all users (includes updating the system path), at C:\Python311-64.

Run from the master node:

[salt]$ sudo salt 'test-winvm-1' cmd.run 'where python'
test-winvm-1:
    C:\Python311-64\python.exe
[salt]$ sudo salt 'test-winvm-1' cmd.run 'where pip'
test-winvm-1:
    C:\Python311-64\Scripts\pip.exe
[salt]$ sudo salt 'test-winvm-1' cmd.run 'pip list'
test-winvm-1:
    Package    Version
    ---------- -------
    pip        24.0
    setuptools 65.5.0
[salt]$ sudo salt 'test-winvm-1' pip.list bin_env='C:\Python311-64\Scripts\pip.exe'
test-winvm-1:
    ----------
    pip:
        24.0
    setuptools:
        65.5.0

So far, so good.

Unfortunately, this should match the last output, but does not:

[salt]$ sudo salt 'test-winvm-1' pip.list
test-winvm-1:
    ----------
    CherryPy:
        18.6.1
    GitPython:
        3.1.37
    Jinja2:
        3.1.2
<snip>
    pip:
        22.3.1
<snip>
    salt:
        3006.5
<snip>
    zipp:
        3.12.0         

Versions Report

Master node:

[salt]$ salt --versions-report
Salt Version:
          Salt: 3007.0

Python Version:
        Python: 3.10.13 (main, Feb 19 2024, 03:31:20) [GCC 11.2.0]

Dependency Versions:
          cffi: 1.16.0
      cherrypy: unknown
      dateutil: 2.8.2
     docker-py: Not Installed
         gitdb: Not Installed
     gitpython: Not Installed
        Jinja2: 3.1.3
       libgit2: Not Installed
  looseversion: 1.3.0
      M2Crypto: Not Installed
          Mako: Not Installed
       msgpack: 1.0.7
  msgpack-pure: Not Installed
  mysql-python: Not Installed
     packaging: 23.1
     pycparser: 2.21
      pycrypto: Not Installed
  pycryptodome: 3.19.1
        pygit2: Not Installed
  python-gnupg: 0.5.2
        PyYAML: 6.0.1
         PyZMQ: 25.1.2
        relenv: 0.15.1
         smmap: Not Installed
       timelib: 0.3.0
       Tornado: 6.3.3
           ZMQ: 4.3.4

Salt Package Information:
  Package Type: onedir

System Versions:
          dist: oracle 8.9
        locale: utf-8
       machine: x86_64
       release: 5.15.0-204.147.6.3.el8uek.x86_64
        system: Linux
       version: Oracle Linux Server 8.9

Minion:

[salt]$ sudo salt 'test-winvm-1' test.versions_report
test-winvm-1:
    Salt Version:
              Salt: 3006.5

    Python Version:
            Python: 3.10.13 (heads/main:5600dd9, Nov 15 2023, 04:42:06) [MSC v.1937 64 bit (AMD64)]

    Dependency Versions:
              cffi: 1.14.6
          cherrypy: 18.6.1
          dateutil: 2.8.1
         docker-py: Not Installed
             gitdb: 4.0.7
         gitpython: 3.1.37
            Jinja2: 3.1.2
           libgit2: Not Installed
      looseversion: 1.0.2
          M2Crypto: Not Installed
              Mako: Not Installed
           msgpack: 1.0.2
      msgpack-pure: Not Installed
      mysql-python: Not Installed
         packaging: 22.0
         pycparser: 2.21
          pycrypto: Not Installed
      pycryptodome: 3.10.1
            pygit2: Not Installed
      python-gnupg: 0.4.8
            PyYAML: 6.0.1
             PyZMQ: 25.0.2
            relenv: 0.14.2
             smmap: 4.0.0
           timelib: 0.2.4
           Tornado: 4.5.3
               ZMQ: 4.3.4

    System Versions:
              dist:
            locale: cp1252
           machine: AMD64
           release: 2019Server
            system: Windows
           version: 2019Server 10.0.17763 SP0 Multiprocessor Free