Forty-two groups became large enough to be labeled an insurgency; 38 of those had ended by 2006. Of those, 47 percent converted to nonviolent political actors. Only 5 percent were taken out by law enforcement. Twenty-six percent won. Twenty-one percent succumbed to military force. Jones and Libicki concluded that military force may be necessary to deal with large insurgencies but are only occasionally decisive, because the military is too often seen as a bigger threat to civilians than the terrorists. To avoid that, the rules of engagement must be conscious of collateral damage and work to minimize it.