「Plurality of congealed folks」: clogging the pathway, plugging an entrance or an exit way, likely a clogged urethra as a result of infection in need of a medical specialist. CONTROL also refers to the government's attempts to limit access into the red-lined districts if a client was infected by mandatory inspections at the gateways and by surrounding those districts with low walls patrolled by brute squads.
　A large crowd or long queue in front of a renowned sexual services provider, all awaiting to be serviced.
　「Seeing a specialist and person congealed, coagulated」was/is necessary with many sexually transmitted infections, particularly gonorrhea, treated by the witch doctor shaman specialists who operated within the gateway inspection stations. The「way to further in methods」consisted of reaming the urethra with a long thin rasp called a 'bougie' (hence, the bogeyman or bougieman). Scarring from sexually transmitted diseases can cause both a shortened penis and a bent or curled penis, especially when attempting to become erect. Gonorrhea and other such diseases cause scar tissue to form within the urethra:
　「Peyronie's Disease, …also known as 'Induratio penis plastica,' or more recently 'Chronic Inflammation of the Tunica Albuginea (CITA),' is a connective tissue disorder involving the growth of fibrous plaques in the soft tissue of the penis affecting up to 10% of men. Specifically, scar tissue forms in the tunica albuginea, the thick sheath of tissue surrounding the corpora cavernosa causing pain, abnormal curvature, erectile dysfunction, indentation, loss of girth and shortening. …The disease may cause pain. Hardened, big, cord-like lesions (scar tissue known as 'plaques'). Or abnormal curvature of the penis when erect due to chronic inflammation of the tunica albuginea (CITA). Although the popular conception of Peyronie's Disease is that it always involves curvature of the penis, the scar tissue sometimes causes divots or indentations rather than curvature. The condition may also make sexual intercourse painful and/or difficult…」
　　[　https://en.wikipedia.org/wiki/Peyronie%27s_disease 2012-08-15　]　
　GOVERNING CONTROL, MANAGEMENT TACTICS, GOVERNMENT ADMINISTRATIVE REGULATIONS were ordered BY LAW and enforced during endemic outbreaks of sexually transmitted diseases in the attempt to stem the tide. Infected people were forced to wear a codpiece and loincloth to prevent contagious dripping in public places, and undergo treatment by reaming with a bougie, again and again until symptoms abated. Official records were maintained of the treatment results to enable tracing of an outbreak or resurgence, and shaman brute squads enforced the laws under government authority, going door to door when the need arose (see: 'magistrate, authority' 尹 and 津).

Modern definitions (that generally disregard history) …excluding politically incorrect concepts and other meanings deemed offensive today; may list only pigeonholed definitions, euphemisms, or meaningless mnemonics)
Chinese: to block; to restrain; to control
Unihan extended: block, obstruct, stop up, conceal
EDRDG: obstruct; conceal