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Sometimes out of fear, dogs will bark at strangers. They are just scared. However, if you venture into the dogs' territory, they may have the instinct to protect and become aggressive.
Most dogs in public areas don't have this need to protect and be aggressive. They are more likely to simply bark and walk away if they are not sure about you.
There is an Old Chinese saying 'Barkless Dogs Can Kill!' Sometimes it's dogs which don't bark you should be careful about. They show their fangs and growl to intimidate and assert their dominance. They are more likely to become aggressive. It is usually towards other dogs though.
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