The Croatian War of Independence was an armed conflict fought in Croatia from 1991 to 1995 between Croat forces loyal to the Government of Croatia—which had declared independence from the Socialist Federal Republic of Yugoslavia (SFRY)—and the Serb-controlled Yugoslav People's Army (JNA) and local Serb forces, with the JNA ending its combat operations by 1992.
A majority of Croats supported Croatia's independence from Yugoslavia, while many ethnic Serbs living in Croatia, supported by Serbia, opposed the secession and advocated Serb-claimed lands to be in a common state with Serbia. Most Serbs sought a new Serb state within a Yugoslav federation, including areas of Croatia and Bosnia and Herzegovina with ethnic Serb majorities or significant minorities, and attempted to conquer as much of Croatia as possible. Croatia declared independence on June 25, 1991, but agreed to postpone it with the Brioni Agreement and cut all remaining ties with Yugoslavia on October 8, 1991.
The JNA initially tried to keep Croatia within Yugoslavia by occupying all of Croatia. After this failed, Serb forces established the self-proclaimed proto-state Republic of Serbian Krajina (RSK) within Croatia, which began with the Log Revolution. After the ceasefire of January 1992 and international recognition of the Republic of Croatia as a sovereign state, the front lines were entrenched, the United Nations Protection Force (UNPROFOR) was deployed, and combat became largely intermittent in the following three years. During that time, the RSK encompassed 13,913 square kilometers (5,372 sq mi), more than a quarter of Croatia. In 1995, Croatia launched two major offensives known as Operation Flash and Operation Storm; these offensives effectively ended the war in its favor. The remaining United Nations Transitional Authority for Eastern Slavonia, Baranja and Western Sirmium (UNTAES) zone was peacefully reintegrated into Croatia by 1998.
The war ended with Croatian victory, as it achieved the goals it had declared at the beginning of the war: independence and preservation of its borders. Approximately 21–25% of Croatia's economy was ruined, with an estimated US$37 billion in damaged infrastructure, lost output, and refugee-related costs. Over 20,000 people were killed in the war, and refugees were displaced on both sides. The Serbian and Croatian governments began to progressively cooperate with each other, but tensions remain, in part due to verdicts by the International Criminal Tribunal for the former Yugoslavia (ICTY) and lawsuits filed by each country against the other.
In 2007, the International Criminal Tribunal for the former Yugoslavia (ICTY) returned a guilty verdict against Milan Martić, one of the Serb leaders in Croatia, for having colluded with Slobodan Milošević and others to create a "unified Serbian state". Between 2008 and 2012, the ICTY had prosecuted Croatian generals Ante Gotovina, Mladen Markač and Ivan Čermak for alleged involvement in the crimes related to Operation Storm. Čermak was acquitted outright, and the convictions of Gotovina and Markač were later overturned by an ICTY Appeals Panel. The International Court of Justice dismissed mutual claims of genocide by Croatia and Serbia in 2015. The Court reaffirmed that, to an extent, crimes against civilians had taken place, but it ruled that specific genocidal intent was not present.
Background
Political changes in Yugoslavia
In the 1970s, Yugoslavia's socialist regime became severely splintered into a liberal-decentralist nationalist faction led by Croatia and Slovenia that supported a decentralized federation to give greater autonomy to Croatia and Slovenia, versus a conservative-centralist nationalist faction led by Serbia that supported a centralized federation to secure Serbia's and the Serbs' interests across Yugoslavia — as they were the largest ethnic group in the country as a whole. From 1967 to 1972 in Croatia and 1968 and 1981 protests in Kosovo, nationalist doctrines and actions caused ethnic tensions that destabilized Yugoslavia. The suppression by the state of nationalists is believed to have had the effect of identifying Croat nationalism as the primary alternative to communism itself and made it a strong underground movement.
A crisis emerged in Yugoslavia with the weakening of the communist states in Eastern Europe towards the end of the Cold War, as symbolized by the fall of the Berlin Wall in 1989. In Croatia, the regional branch of the League of Communists of Yugoslavia, the League of Communists of Croatia, had lost its ideological potency. Slovenia and Croatia advocated decentralization. SR Serbia, headed by Slobodan Milošević, adhered to centralism and single-party rule, and in turn effectively ended the autonomy of the provinces of Kosovo and Vojvodina by March 1989, taking command of their votes in the Yugoslav federal presidency. Nationalist ideas started to gain influence within the ranks of the still-ruling League of Communists, while Milošević's speeches, notably the 1989 Gazimestan speech in which he talked of "battles and quarrels", favored continuation of a unified Yugoslav state — one in which all power would continue to be centralized in Belgrade.
In the autumn of 1989, the Serbian government pressured the Croatian government to allow a series of Serb nationalist rallies in the country. The Serbian media and various Serbian intellectuals had already begun to refer to the Croatian leadership as "Ustaše", and began to make reference to genocide and other crimes committed by the Ustaše between 1941 and 1945. The Serbian political leadership approved of the rhetoric and accused the Croatian leadership of being "blindly nationalistic" when it objected.
Having completed the anti-bureaucratic revolution in Vojvodina, Kosovo, and Montenegro, Serbia secured four out of eight federal presidency votes in 1991, which rendered the governing body ineffective as other republics objected and called for reform of the Federation. In 1989, political parties were allowed and a number of them had been founded, including the Croatian Democratic Union (Croatian: Hrvatska demokratska zajednica) (HDZ), led by Franjo Tuđman, who later became the first president of Croatia. Tuđman ran on a nationalist platform, with a program of "national reconciliation" between Croatian communists and former Ustašes (fascists) being a key component of his party's political program. Accordingly, he also integrated former Ustaše members into the party and state's apparatus.
In January 1990, the League of Communists broke up on ethnic lines, with the Croatian and Slovene factions demanding a looser federation at the 14th Extraordinary Congress. At the congress, Serbian delegates accused the Croatian and Slovene delegates of "supporting separatism, terrorism and genocide in Kosovo." The Croatian and Slovene delegations, including most of their ethnic Serb members, eventually left in protest, after Serbian delegates rejected every proposed amendment.
January 1990 also marked the beginning of court cases being brought to Yugoslavia's Constitutional Court on the matter of secession. The first was the Slovenian Constitutional Amendments case after Slovenia claimed the right to unilateral secession pursuant to the right of self-determination. The Constitutional Court ruled that secession from the federation was only permitted if there was the unanimous agreement of Yugoslavia's republics and autonomous provinces. The Constitutional Court noted that the 1974 Constitution's Section I of the Basic Principles of the Constitution identified that self-determination, including secession, "belonged to the peoples of Yugoslavia and their socialist republics." The matter of Kosovo secession was addressed in May 1991 with the court claiming that "only the peoples of Yugoslavia" had the right to secession; Albanians were considered a minority (narodnost) and not a people (narod) of Yugoslavia.
The 1990 survey conducted among Yugoslav citizens showed that ethnic animosity existed on a small scale. Compared to the results from 25 years before, Croatia was the republic with the highest increase in ethnic distance. Furthermore, there was a significant increase in ethnic distance among Serbs and Montenegrins toward Croats and Slovenes, and vice versa. Of all respondents, 48% of Croats said that their affiliation with Yugoslavia is very important to them.
In February 1990, Jovan Rašković founded the Serb Democratic Party (SDS) in Knin, whose program aimed to change the regional division of Croatia to be aligned with ethnic Serb interests. Prominent members of the RSK government, including Milan Babić and Milan Martić, later testified that Belgrade directed a propaganda campaign portraying the Serbs in Croatia as being threatened with genocide by the Croat majority. On March 4, 1990, 50,000 Serbs rallied at Petrova Gora and shouted negative remarks aimed at Tuđman, chanted "This is Serbia," and expressed support for Milošević.
The first free elections in Croatia and Slovenia were scheduled to begin the following month. The first round of elections in Croatia was held on April 22, 1990, and the second round on May 6. The HDZ based its campaign on greater sovereignty (eventually outright independence) for Croatia, fueling a sentiment among Croats that "only the HDZ could protect Croatia from the aspirations of Milošević towards a Greater Serbia." It topped the poll in the elections (followed by Ivica Račan's reformed communists, Social Democratic Party of Croatia) and was set to form a new Croatian Government.
A tense atmosphere prevailed on May 13, 1990, when a football game was held in Zagreb at Maksimir Stadium between Zagreb's Dinamo team and Belgrade's Red Star. The game erupted into violence between the Croatian and Serbian fans and with the police.
On May 30, 1990, the new Croatian Parliament held its first session. President Tuđman announced his manifesto for a new Constitution (ratified at the end of the year) and a multitude of political, economic, and social changes, notably to what extent minority rights (mainly for Serbs) would be guaranteed. Local Serb politicians opposed the new constitution. In 1991, Croats represented 78.1% and Serbs 12.2% of the total population of Croatia, but the latter held a disproportionate number of official posts: 17.7% of appointed officials in Croatia, including police, were Serbs. An even greater proportion of those posts had been held by Serbs in Croatia earlier, which created a perception that the Serbs were guardians of the communist regime. Serbian politician and sociologist Vesna Pešić states that this caused discontent among the Croats but that it never actually undermined their own dominance in SR Croatia. After the HDZ came to power, many Serbs employed in the public sector, especially the police, were fired and replaced by Croats. This, combined with Tuđman's remarks, e.g., "Thank God my wife is not a Jew or a Serb," were distorted by Milošević's media to spark fear that any form of an independent Croatia would be a new "Ustashe state". In one instance, TV Belgrade showed Tuđman shaking hands with German Chancellor Helmut Kohl (who would be the first government leader in the world to recognize independent Croatia and Slovenia), accusing the two of plotting "a Fourth Reich". Aside from the firing of many Serbs from public sector positions, another concern among Serbs living in Croatia was the HDZ's public display of the šahovnica (Croatian checkerboard) in the Croatian coat of arms, which was associated with the fascist Ustaše regime. This was a misconception, as the checkerboard had a history going back to the 15th century and was not identical to the one that was used in the WW2-era Independent State of Croatia. However, Tuđman's xenophobic rhetoric and attitude towards Croatian Serbs, as well as his support for former Ustaše leaders, did little to ease Serbian fears.
Civil unrest and demands for autonomy
Immediately after the Slovenian parliamentary election and the Croatian parliamentary election in April and May 1990, the JNA announced that the Tito-era doctrine of "general people's defense", in which each republic maintained a Territorial defense force (Serbo-Croatian: Teritorijalna obrana) (TO), would henceforth be replaced by a centrally directed system of defense. The republics would lose their role in defense matters, and their TOs would be disarmed and subordinated to JNA headquarters in Belgrade, but the new Slovenian government acted quickly to retain control over their TO. On May 14, 1990, the weapons of the TO of Croatia, in Croat-majority regions, were taken away by the JNA, preventing the possibility of Croatia having its own weapons as was done in Slovenia. Borisav Jović, Serbia's representative in the Federal Presidency and a close ally of Slobodan Milošević, claimed that this action came at the behest of Serbia.
According to Jović, on June 27, 1990, he and Veljko Kadijević, the Yugoslav Defence Minister, met and agreed that they should, regarding Croatia and Slovenia, "expel them forcibly from Yugoslavia, by simply drawing borders and declaring that they have brought this upon themselves through their decisions". According to Jović, the next day he obtained the agreement of Milošević. However, Kadijević, of mixed Serb-Croat heritage and a Yugoslav Partisan in World War II, was loyal to Yugoslavia and not a Greater Serbia; Kadijević believed that if Slovenia left Yugoslavia the state would collapse and thus he discussed with Jović about possibly using the JNA to impose martial law in Slovenia to prevent this potential collapse and was willing to wage war with the secessionist republics to prevent their secession. Kadijević considered the political crisis and ethnic conflict to have been caused by the actions of foreign governments, particularly Germany, which he accused of seeking to break up Yugoslavia to allow Germany to exercise a sphere of influence in the Balkans. Kadijević regarded the Croatian government of Tuđman to be fascist-inspired and that Serbs had the right to be protected from Croatian "armed formations".
After the election of Tuđman and the HDZ, a Serb Assembly was established in Srb, north of Knin, on July 25, 1990, as the political representation of the Serb people in Croatia. The Serb Assembly declared "sovereignty and autonomy of the Serb people in Croatia".
The new Croatian government implemented policies that were seen as openly nationalistic and anti-Serbian in nature, such as the removal of the Serbian Cyrillic script from correspondence in public offices.
Greater Serbian circles have no interest in protecting the Serbian people living in either Croatia or Bosnia or anywhere else. If that were the case, then we could look and see what it is in the Croatian constitution, see what is in the declaration on minorities, on the Serbs in Croatia and on minorities, because the Serbs are treated separately there. Let us see if the Serbs have less rights than the Croats in Croatia. That would be protecting the Serbs in Croatia. But that is not what is sought. Gentlemen, what they want is territory.