From the text of the document:

"Some NGOs may actually promote aims which conflict with or are counter to the

COIN strategy and COIN planners should take care to establish their motivations

and activities before engagement. NGOs that oppose the affected government or

actively forge links with insurgents will create security problems and risks, but they

may also provide opportunities to open channels for negotiation or mediation with

insurgents. Criticism by NGOs can be useful in drawing attention to those issues

where reform actions are necessary. Finally, as an independent and often credible

source of ‘ground truth’ about the areas in which they work, they will be an important source of information to many interested parties."

Think Clinton Foundation, Red Cross, Soros foundations, etc.