Arbitration Commission of the Peace Conference on Yugoslavia
On 20 November 1991 Lord Carrington asked: "Can the internal boundaries between Croatia and Serbia and between Bosnia and Herzegovina and Serbia be regarded as frontiers in terms of public international law?" Applying the principle of "uti possidetis juris", the commission concluded on 11 January 1992, "The boundaries between Croatia and Serbia, between Bosnia and Herzegovina and Serbia, and possibly other adjacent independent states may not be altered except by agreement freely arrived at... Except where otherwise agreed, the former boundaries become frontiers protected by international law".
Republic of Serbian Krajina
Croatia held a referendum on independence on 19 May 1991, in which the electorate—minus many Serbs, who chose to boycott it—voted overwhelmingly for independence with the option of confederate union with other Yugoslav states - with 83 percent turnout, voters approved the referendum by 93 percent. On 25 June 1991, Croatia and Slovenia both declared their independence from Yugoslavia. As the JNA attempted unsuccessfully to suppress Slovenia's independence in the short Slovenian War, clashes between revolting Croatian Serbs and Croatian security forces broke out almost immediately, leaving dozens dead on both sides. Serbs were supported by remnants of the JNA (whose members were now only from Serbia and Montenegro), which provided them weapons. Many Croatians fled their homes in fear, or were forced out by the rebel Serbs. The European Union and United Nations unsuccessfully attempted to broker ceasefires and peace settlements.
Around August 1991, the leaders of Serbian Krajina and Serbia allegedly agreed to embark on a campaign which the ICTY prosecutors described as a "joint criminal enterprise" whose purpose "was the forcible removal of the majority of the Croat and other non-Serb population from approximately one-third of the territory of the Republic of Croatia, an area he planned to become part of a new Serb-dominated state." According to testimony given by Milan Babić in his subsequent war crimes trial, during the summer of 1991 the Serbian secret police (under Milošević's command) set up "a parallel structure of state security and the police of Krajina and units commanded by the state security of Serbia". Paramilitary groups such as Wolves of Vučjak and White Eagles, funded by the Serbian secret police, were also a key component of this structure.