I think the "two" referred to were the dog killers. I think Pan is answering to Operation Red Wing, when the Afghani shepherd they came across and let go notified the Taliban where the SEALs were, the Shepherd should have been whacked. All of those boys may still be with us if that had happened, so yes, ROE's were resticted to identifiable combatants, same mistake we made with VC too, you'd think we'd learned that lesson.