Peacekeeping Operations Alan Le Roy, claimed that a "humanitarian tragedy" was unfolding in the Congo. Despite the organization's largest peacekeeping force being situated there, he claimed that "compared to the enormity of the tasks it is assigned and the vast expanse of the DRC – roughly the size of the United States east of the Mississippi and virtually without infrastructure – this number is actually rather small. Civilians have suffered from intense and often chaotic fighting, driven from their homes, caught in the crossfire and subjected to direct attacks and reprisals by armed groups and undisciplined elements of the national army. MONUC forces cannot serve as a substitute for the Congolese army to fight a war or impose peace; [the peacekeepers] are not an expeditionary or counterinsurgency force. With so much at stake, the international community simply cannot afford to let the Congo slide into the abyss, the time to act is, and indeed must be, now." Le Roy reaffirmed that more action should be taken until agreements could be reached by the opposing sides. At a conference on December 9 EU ministers remained divided on the issue of sending a "bridging force", citing the stabilizing situation. On December 11, the Human Rights Watch found that 150 or more Congolese civilians had died at the hands of Congolese rebels in the town of Kiwanja. Earlier estimates had placed the death toll at 30. Mai-Mai militia, aligned with the government, had also "deliberately killed people". MONUC peacekeepers, who had been away at the time but had not been protecting it, were criticized for not supervising the town, which was one of several that had been taken over by rebel forces (another prominent one being the territorial capital of Rutshuru). The report stated that "Due to the importance of these two towns as centers for humanitarian assistance, MONUC considered them a priority protection zone, yet the peacekeepers did not protect the towns from a rebel takeover or halt the destruction of displacement camps. Nor did they stop the mass killing of civilians in Kiwanja where they had an important field base." HRW alleged that "following the Kiwanja killings, CNDP and Mai-Mai combatants continue to kill, rape, forcibly recruit children, and otherwise mistreat civilians in and around Kiwanja, the neighbouring town of Rutshuru, and in areas further north." Also, it reported another "18 deliberate killings in November and December perpetrated by the CNDP,