Yes, a top-down safety culture entails some level of bureaucracy and process overhead. That is the price that must be paid for jobsite safety. No one is saying there's a free lunch.
If safety is cheap but overcoming culture is expensive, at some point it becomes misleading (wrt ethics of participants, not correct course of action) to say the problem is that management doesn't care enough to spend money on safety, even if management is the only lever we have to fix the issue.
