Vanguard Fiduciary Trust Company, as a manager for others
It looks like from the filing, and what I could find about collective investment funds, that Vanguard is reporting on a collection of trust accounts at its company. I expect the trust accounts may be under the control and direction of other people.
The main take away seems to be is that while that shares are on account at a Vanguard subsidiary, the shares are not voted by Vanguard and Vanguard does not have total control on when to sell or buy the shares. I expect that would be up to the trustee of each account.