A/69/266 obligations and to provide necessary support and capacity-building measures when a State is unable to meet its obligation to protect populations. Under the third pillar, the international community must use appropriate diplomatic, humanitarian and other means to protect populations from these crimes but must be prepared to take additional collective action to protect populations, in accordance with the Charter of the United Nations. The three pillars are not sequential and each pillar is of equal importance. They are also mutually reinforcing: while appointing a special envoy to a country to monitor a deteriorating situation is a response on its own, it is also a preventative tool as it might help to stop the violence from escalating. 80. Even countries with the political will to protect disadvan taged minorities may lack the capacity, expertise and mechanisms to respond appropriately. The Special Rapporteur considers that greater attention should be given under the second pillar to assisting States and providing technical cooperation and capacity-building in the area of minority issues, including training in minority rights and effective practices for the protection of minority rights, and in the management of diverse populations for officials, including law enforcement bodies and the judiciary. 81. Governments can be active perpetrators, that is, directly involved in the commission of crimes by means of security forces or mercenaries, or passive perpetrators, when they do not act to protect a group that is subjected to atrocities by non-State actors. When Governments fail, the international community must take adequate steps to stop violence and crime and hold those responsible accountable. There must be a preference for peaceful means: international diplomacy, negotiation and mediation, along with humanitarian assistance. If given consent, a United Nations peacekeeping operation must strive to bring to an end the deliberate action or inaction of the Government, and obtain credible guarantees that the Government will assume and/or resume its responsibility to protect. 82. If the Government manifestly demonstrates its refusal or inaction to stop the crimes, collective action should be urgently considered. Under the third pillar of the strategy for the implementation of the responsibility to protect, Me mber States have the responsibility “to take collective action, in a timely and decisive manner, through the Security Council, in accordance with the Charter of the United Nations, including Chapter VII, on a case-by-case basis and in cooperation with relevant regional organizations as appropriate, should peaceful means be inadequate and national authorities are manifestly failing to protect their populations from genocide, war crimes, ethnic cleansing and crimes against humanity” (see A/66/874-S/2012/578, para. 2). Such collective action may include sanctions, embargoes and restrictions on cooperation. Ultimately, the use of force can be authorized by the Security Council. In situations in which there is an imminent or ongoing killing of civilian populations, measures must be established to enable appropriate and rapid intervention. 83. There are also promising intergovernmental initiatives. Global Action against Mass Atrocity Crimes is a State-led initiative to prevent mass atrocity crimes and focuses on prevention at the national and regional levels. It aims to support States engaged in preventing mass atrocity crimes and to assist those that are considering the development of preventative strategies. The initiati ve also serves as a platform for the exchange and dissemination of learning and good practice and works closely with some key civil society organizations. 84. International actors can confront significant challenges in retaining the essential support of a Government in delivering assistance while also responding to 14-58850 21/24