premise: In the meantime, Albright had promoted the United Nations' disastrous Safe Havens policy, which placed masses of unarmed Bosnian civilians under the protection of minuscule numbers of U.N. (but no U.S.) troops--that is, left them at the mercy of Serb paramilitaries, who systematically set about driving them from their homes and killing them.
hypothesis: There was more than enough troops for protecting the Bosnians.