Perhaps the clearest shift in U.S. foreign policy emerged when President Bill Clinton issued Executive Order 12865 on 23 September, labeling UNITA a "continuing threat to the foreign policy objectives of the U.S." By August 1993, UNITA had gained control over 70% of Angola, but the government's military successes in 1994 forced UNITA to sue for peace. By November 1994, the government had taken control of 60% of the country. Savimbi called the situation UNITA's "deepest crisis" since its creation. It is estimate that perhaps 120,000 people were killed in the first eighteen months following the 1992 election, nearly half the number of casualties of the previous sixteen years of war. Both sides of the conflict continued to commit widespread and systematic violations of the laws of war with UNITA in particular guilty of indiscriminate shelling of besieged cities resulting in large death toll to civilians. The MPLA government forces used air power in indiscriminate fashion also resulting in high civilian deaths. The Lusaka Protocol of 1994 reaffirmed the Bicesse Accords.