It could be used to refer to an external group such as the government or others, the text is intentionally written with ambiguity. With the information in my possession its likelihood is lower but to give a definitive answer you'd have to give me more context.
Those problems are not uncommon in natural language as it's not a formal language. Another examples of this ambiguity is the following:
   The man watches the woman with a binocular
It is not possible to defenitivly say whether it is the man or the woman holding the binoculars.
This is one reason why NLP is a undecidable problem.
spam fails_task lang_mismatch pii not_appropriate hate_speech sexual_content quality toxicity humor helpfulness creativity violence