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Question about Pam 21 , EASP and live enemy

Hi , I am in the middle of writing an EASP and I notice that Pam 21 states
Section 3-20

‘ (2) The use of live enemy is forbidden. However, for mission critical training, ODH approval must be sought (see paragraph 1-09(e)).’

What does this mean? Almost all the exercises I have been on using involve enemy troops who fire blanks. Is this saying you shouldn’t do this?