Well, if we look at it realistically, things like the Red Cross more than likely simply provide a medium for transportation and perhaps discussions in safe locations where no one will overhear. Perhaps they could also provide victims nobody would ever miss. Perhaps people nobody would ever miss can be goaded into loyalty and simply wait to be told to do something. Though that would take a considerable amount of work because of how many people there are in this world. If we're just brainstorming here. Those are all just guesses off the top of my head.