...and this is a good one. Note the three-tier vs two-tier triangles.

Without definition from the source, one can assume

a. "insurgents" are local/regional therefore their strategic level is the theater/operational

b. "insurgents" are part of a larger network (al Qaeda) with a theater/operational "command level" that is inconsequential to the discussion

c. both

I say "c". Regardless, the "insurgents" benefit from a more efficient model. If that isn't a "problem" from our POV it should be. The solution (I don't mean to imply that it's simple) is to increase efficiency within ours.

(I'm also operating from the assumption we're talking more Information Operations and less COIN vs conventional here.)