5-38. Stability operations require commanders to balance protection needs between military forces and civil populations. Because U.S. forces and the local population frequently interact, planning for their protection is important and difficult. Threats attack to weaken U.S. resolve and promote their individual agendas. Such enemies, who may be nearly indistinguishable from noncombatants, view U.S. forces and facilities as prime targets. An additional planning consideration during stability operations is to protect the force while using the minimum force necessary, which is consistent with the approved rules of engagement. The escalation of force TTP must also be rehearsed and be flexible enough to change with the local threat conditions. Collateral damage caused by military operations can negatively impact the mission and can support enemy or adversary provocation tactics. Conversely, overly restrictive rules of engagement can limit the freedom of action and the ability to protect the force.