59. Read the following passage, then answer the question below.

Conventional regulatory theory tends to model compliance as primarily a function of enforcement intensity: the probability of detection multiplied by the severity of sanctions. Yet a growing body of research suggests that this deterrence-based framework, while not incorrect, is incomplete. Compliance behavior appears to be substantially mediated by perceptions of institutional legitimacy, that is, whether regulated parties view the rules and the authorities enforcing them as fair and trustworthy. Where legitimacy is high, voluntary compliance persists even when enforcement capacity is weak; where legitimacy is eroded, even stringent enforcement regimes struggle to secure durable compliance, as regulated parties invest effort in evasion rather than adherence. This suggests that regulatory agencies preoccupied solely with expanding enforcement capacity may be addressing a symptom while neglecting a more fundamental determinant of the behavior they seek to influence.

What criticism does the passage level at agencies that focus solely on expanding enforcement capacity?