I think it might be useful to look at the whole verse in order to understand the meaning of that line:
As some warn victory, some downfall
Private reasons great or small
Can be seen in the eyes of those that call
To make all that should be killed to crawl
While others say donít hate nothing at all
Like most Dylan lyrics, it's fairly poetic and cryptic. My own personal interpretation of it is that there are some people that have the power to kill, but instead they let (or make) them crawl away.
Retired English Teacher