Although the war in Congo officially ended in 2003, two million people have died since. One of the reasons is that the international community's peacekeeping efforts there have not focused on the local grievances in eastern Congo, especially those over land, that are fueling much of the broader tensions. Until they do, the nation's security and that of the wider Great Lakes region will remain uncertain.
SéVERINE AUTESSERRE is Assistant Professor of Political Science at Barnard College, Columbia University.
When, in 2006, Joseph Kabila became the first democratically elected president of the Democratic Republic of the Congo, many Congolese and international observers hoped that stability had finally come to the country. During the previous decade, Congo had been ravaged by widespread violence, including the world's deadliest conflict since World War II -- a conflict that involved three Congolese rebel movements, 14 foreign armed groups, and countless militias; killed over 3.3 million Congolese; and destabilized most of central Africa. In 2001, the United Nations dispatched to the country what was to become its largest and most expensive peacekeeping mission. A peace settlement was reached in 2003, paving the way for the 2006 elections. The entire effort was touted as an example of a successful international intervention in a collapsing state.
Yet over two million more Congolese have died since the official end of the war. According to the International Rescue Committee, over a thousand civilians continue to die in Congo every day, mostly due to malnutrition and diseases that could be easily prevented if Congo's already weak economic and social structures had not collapsed during the conflict. In mid-2007, in the eastern province of Nord-Kivu, low-level fighting between government forces and troops of the renegade Tutsi general Laurent Nkunda escalated into a major confrontation, both playing off and exacerbating long-standing animosity between the Tutsis, the Hutus, and other groups. Since then, clashes have killed hundreds, maybe thousands, of fighters and civilians and forced half a million people to relocate. Congo is now the stage for the largest humanitarian disaster in the world -- far larger than the crisis in Sudan.
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People need an international system for security of many kinds. But the United Nations today is precariously funded, stretched thin by an unprecedented number of peacekeeping missions, and generally underequipped to deal with the rising demand for its services. Reform is necessary for the middle-aged organization. States touchy about sovereignty and interest groups pushing their agendas must sink their differences and work out a plan to revitalize the world body. They might consider giving it an independent source of income and some standing troops for enforcement power.
The difference between the factions in Bosnia is not morality, as the Bosnian Muslims and Western press insist, but power and opportunity. All have the same goal: to avoid living as a minority. All have committed crimes against other ethnic groups. Despite its claims of neutrality and preaching against military solutions, the United States has favored the Bosnian Muslims, keeping silent as they launched offensives from U.N.-guarded safe areas. Since air strikes cannot resolve the conflict, the United States must discourage violence by all sides and let Russia--the one country Serbs trust--take the lead in negotiations.
The intervention in Somalia was not an abject failure; an estimated 100,000 lives were saved. But its mismanagement should be an object lesson for peacekeepers in Bosnia and on other such missions. No large intervention, military or humanitarian, can remain neutral or assuredly brief in a strife-torn failed state. Nation-building, the rebuilding of a state's basic civil institutions, is required in fashioning a self-sustaining body politic out of anarchy. In the future, the United States, the United Nations, and other intervenors should be able to declare a state "bankrupt" and go in to restore civic order and foster reconciliation.

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