Interesting headline, yes? I have a two-point intro and then the piece. 
First, when a “private” group’s chief individuals flow back and forth constantly between government and that group, the group can be said to be “part” of government, or to have “infiltrated” government, or to have been “folded into” government. (Your phrasing will be determined by who you think is the instigator.)
For example, a network of private “security consulting” firms does standing business with the (Pentagon’s) NSA, and by some accounts performs 70% of their work. Are those firms part of the NSA or not? Most would say yes, to a great degree. It’s certain that the NSA would collapse without them, and many of these firms would collapse without the NSA (though many have other … ahem, international … clients, which starts an entirely different discussion).
As another example, the role of mega-lobbying firms as a fourth branch of government was explored here. Same idea.
In the case of the security firms, one might say they have been “folded into” government. In the case of the lobbying firms, one might say they have “infiltrated” government. I hope you notice the difference; both modes of incorporation occur.