It's also just headlinese, attempting to compress important information into a compact headline.

And it's perfectly fine and understandable. Headline conventions do present some syntactic ambiguity at some point, but this is entirely understandable if the reader applies even a fraction of common sense, let alone one that reads the article under the headline.

On an ambiguity scale of 1 to crash blossoms, this is a 3 at most.