[this temptation] can become so fertile a spawner of committees as to blanket the whole executive branch with an embalmed atmosphere

At every level, officials make judgments about who participates in decision-making groups. As we have seen, great attention is often given to the balance of perspectives that will be represented in a group. The temptation to jump on what one especially able former Defense Secretary, Robert Lovett, called the "merry-go-round of 'concurrences" is acute. Lovett feared that "unless carefully and boldly policed, [this temptation] can become so fertile a spawner of committees as to blanket the whole executive branch with an embalmed atmosphere ... . [T]he idea seems to have got around that just because some decision may affect your activities, you automatically have a right to take part in making it. (Essence of Decision, p.278)

I don't understand the structure of the sentence in bold. Does it mean "this temptation can make a spawner of committees so fertile that it can cover the whole executive branch with an embalmed atmosphere"?

Thank you very much.