Word! That's the second time I've heard this. I have interpreted something incorrectly. Looking at the wording in the core books two NPO's. It mentions 'during that activation', and I interpreted that to mean 'at any point'.
So even if a Frenzied NPO doesn't start engaged, and cannot perform a fight action, if there is a valid operative that the they could charge then fight, then they get an engage order for that activation.
I don't interpret the 'during that activation' in the core book instructions to mean 'at the beginning' of that activation.
But maybe I am missing something simple?