Yeah...difficult to tell, but usually when one uses metonymy in that way it implies government or at least a governmental entity.

For those not as crazy-passionate about the English language as I am, here's an example or two of metonymy (courtesy of Wikipedia):

"Wall Street" is often used metonymically to describe the U.S. financial and corporate sector, while "Hollywood" is used as a metonym for the U.S. film industry because of the fame and cultural identity of Hollywood, a district of the city of Los Angeles, California, as the historical center of American film studios and U.S. film stars

https://en.wikipedia.org/wiki/Metonymy