What does " this vast apparatus" refer to? It seems not to refer to the command economy.

Context:

Poor safty was endemic to the command economy, despite detailed labour legislation and meticulous rules on every aspect of industrial work, from the provision of protective clothing to the standards of lighting. An extensive network of labour inspectors - from the Federation of Trade Unions, the Women's Federation and the Communist Youth League, as well as from the Ministry of Health and the Ministry of Labour - periodically toured workshops, monitored health hazards and looked into the living standards of workers. They operated under huge p0olitical pressure and often preferred to turn a blind eye to widespread abuse, but they could file hard-hitting reports. D espite this vast apparatus, factory mangers and team leaders, regardless of their personal sympathies for their workers, remained obsessed with increased output.