One of the themes of the OOC log discussion around the PK approval model is that people are conflict averse because it is too easy to get PK'ed for starting a conflict.
That tells me the root problem is with the code/policy power dynamic antagonists face, not that noncombatants as a general class need more protection.
So the issues are intertwined too deeply to be split up like that IMO. Plus, there are noncombatant villains too.
