Z-4 plan
Encyclopedia
The Z-4 Plan or Draft agreement on the Krajina, Slavonia, Southern Baranja and Western Sirmium stands for the Zagreb
4 peace proposal to end the Croatian War of Independence
. The proposal was made by the Zagreb 4 group (also known as the Mini-Contact Group
) and would have reintegrated the Republic of Serbian Krajina
into Croatia
. The Zagreb 4 group consisted of the United States
(through former Secretary of State
Cyrus Vance
), Russia
, and the European Union
(though France
and Germany
). Their plan was never implemented due to the onset of Operation Storm
, a military operation in which Croatia defeated the Krajina Serbs and captured its territory.
Some aspects of the proposed autonomy included the following:
Croatia is organized as a unitary state
, and many viewed acceptance of the plan as a step to the federalization and confederalization
of the state, both of which were unacceptable. The plan was also opposed because it would have required amending the constitution in significant ways. Croatia had also stated that it would not extend UNPROFOR’s mandate in Croatia past March 31. Croatia did accept the parts of the plan that concerned the establishment of Croatia
n sovereignty on its entire territory, return of the refugees, and local self-administration for the Serbian
ethnic communities. However, Croatia rejected the aspects that exceeded the limits of constitutional provisions and international conventions on the rights of ethnic communities or minorities.
The authorities in Belgrade accepted the plan but only on the conditions that sanctions against Yugoslavia were to be lifted; however, despite this, Krajina authorities still refused to accept the plan. In Yugoslavia, only the Serbian Renewal Movement
called for outright acceptance of the plan. Slobodan Milošević
eventually stated that he agreed with the plan, but that it was up to the Krajina Serbs to accept or reject it. One reason Milošević said this was because Yugoslavia was planning at the time to diplomatically recognize Croatia, but this was unlikely to occur unless an agreement was reached between the Serbs in Krajina and the Croatian government. Milošević had some concerns about the plan because he believed that if Croatia accepted the plan in its initially unacceptable form, Yugoslavia may have been forced to accord the same status to Vojvodina
, Kosovo
and Sandžak
.
In Belgrade
, Vojislav Šešelj
(founder of the nationalist far-right Serbian Radical Party
) said that the self-proclaimed Serbian states in Croatia and Bosnia
(the Republika Srpska
) should declare a union between their two states. Other people called for Yugoslavia to recognize Krajina as being a state, just as Turkey
did to the Turkish Republic of Northern Cyprus
, and Albania
had done with the Republic of Kosova
from 1990-1999.
publicly declared his acceptance the Z-4 Plan through negotiations with U.S. Ambassador to Croatia Peter Galbraith. Croatia refused to acknowledge the plan's acceptance by Krajina authorities, since Krajina president Mile Martić refused even to receive plan.
Zagreb
Zagreb is the capital and the largest city of the Republic of Croatia. It is in the northwest of the country, along the Sava river, at the southern slopes of the Medvednica mountain. Zagreb lies at an elevation of approximately above sea level. According to the last official census, Zagreb's city...
4 peace proposal to end the Croatian War of Independence
Croatian War of Independence
The Croatian War of Independence was fought from 1991 to 1995 between forces loyal to the government of Croatia—which had declared independence from the Socialist Federal Republic of Yugoslavia —and the Serb-controlled Yugoslav People's Army and local Serb forces, with the JNA ending its combat...
. The proposal was made by the Zagreb 4 group (also known as the Mini-Contact Group
Contact Group
The Contact Group is the name for an informal grouping of influential countries that have a significant interest in policy developments in the Balkans. The Contact Group is composed of United States, United Kingdom, France, Germany, Italy, and Russia. It was first created in response to the war...
) and would have reintegrated the Republic of Serbian Krajina
Republic of Serbian Krajina
The Republic of Serbian Krajina was a self-proclaimed Serb entity within Croatia. Established in 1991, it was not recognized internationally. It formally existed from 1991 to 1995, having been initiated a year earlier via smaller separatist regions. The name Krajina means "frontier"...
into Croatia
Croatia
Croatia , officially the Republic of Croatia , is a unitary democratic parliamentary republic in Europe at the crossroads of the Mitteleuropa, the Balkans, and the Mediterranean. Its capital and largest city is Zagreb. The country is divided into 20 counties and the city of Zagreb. Croatia covers ...
. The Zagreb 4 group consisted of the United States
United States
The United States of America is a federal constitutional republic comprising fifty states and a federal district...
(through former Secretary of State
United States Secretary of State
The United States Secretary of State is the head of the United States Department of State, concerned with foreign affairs. The Secretary is a member of the Cabinet and the highest-ranking cabinet secretary both in line of succession and order of precedence...
Cyrus Vance
Cyrus Vance
Cyrus Roberts Vance was an American lawyer and United States Secretary of State under President Jimmy Carter from 1977 to 1980...
), Russia
Russia
Russia or , officially known as both Russia and the Russian Federation , is a country in northern Eurasia. It is a federal semi-presidential republic, comprising 83 federal subjects...
, and the European Union
European Union
The European Union is an economic and political union of 27 independent member states which are located primarily in Europe. The EU traces its origins from the European Coal and Steel Community and the European Economic Community , formed by six countries in 1958...
(though France
France
The French Republic , The French Republic , The French Republic , (commonly known as France , is a unitary semi-presidential republic in Western Europe with several overseas territories and islands located on other continents and in the Indian, Pacific, and Atlantic oceans. Metropolitan France...
and Germany
Germany
Germany , officially the Federal Republic of Germany , is a federal parliamentary republic in Europe. The country consists of 16 states while the capital and largest city is Berlin. Germany covers an area of 357,021 km2 and has a largely temperate seasonal climate...
). Their plan was never implemented due to the onset of Operation Storm
Operation Storm
Operation Storm is the code name given to a large-scale military operation carried out by Croatian Armed Forces, in conjunction with the Army of the Republic of Bosnia and Herzegovina, to gain back control of parts of Croatia which had been claimed by separatist ethnic Serbs, since early...
, a military operation in which Croatia defeated the Krajina Serbs and captured its territory.
Outline of the plan
The plan was meant to allow for the reintegration of the Republic of Serbian Krajina into Croatia by offering wide-ranging autonomy through most of Serbian Krajina. In addition, the plan called for the return of all Croatian refugees. However, the plan would have required UNPROFOR to extend its mandate in order to implement the agreement, and the Croatian constitution would have to have been amended to accommodate the requirements of autonomy.Some aspects of the proposed autonomy included the following:
- Total monetary independence, which would have included fiscal policy and a separate currency pegged to the Kuna.
- Krajina would have been a free trade area with no tariffs; this was meant to encourage economic growth in Krajina.
- Elements of statehood including a coat of armsCoat of armsA coat of arms is a unique heraldic design on a shield or escutcheon or on a surcoat or tabard used to cover and protect armour and to identify the wearer. Thus the term is often stated as "coat-armour", because it was anciently displayed on the front of a coat of cloth...
, flag, anthem, and police. - Eastern Slavonia, Baranja and Western Syrmia would not have been included as part of the autonomous Krajina but would have undergone a separate reintegration process and would have had the presence of international troops for a period of five years. It was intended that this region would not be given a special status. Croatia would have regained control of the region after 5 years, in which an agreement with Croatian authorities would have been reached and the region would have been demilitarized (with the exception of a 5 kilometer zone along the international border and the Danube).
- The 11 municipalities that had Serbian majorities in the 1981 census would have been given a special status and been called “Serbian Krajina”. Pursuant to constitutional law, these municipalities formed the districts of Krajina and Glina.
- The constitution and laws of the Republic of Croatia would have been valid on the territory of Krajina, but they would have to have been approved and implemented by the local authorities.
- Krajina would have had an election of the president of Krajina.
- Krajina would have been demilitarized and the Croatian army could enter it only if called by the president of Krajina.
- No official in Krajina would have been responsible to any authority in Croatia.
Croatian reactions
The plan was given to Croatian and Krajina authorities by the EU in January, 1995. Croatia accepted the plan as a basis for future negotiations, but found many parts of it unacceptable. Some in the Croatian opposition supported the Z-4 Plan. However, MPs from the right-wing parties called for the automatic rejections of the agreement.Croatia is organized as a unitary state
Unitary state
A unitary state is a state governed as one single unit in which the central government is supreme and any administrative divisions exercise only powers that their central government chooses to delegate...
, and many viewed acceptance of the plan as a step to the federalization and confederalization
Confederation
A confederation in modern political terms is a permanent union of political units for common action in relation to other units. Usually created by treaty but often later adopting a common constitution, confederations tend to be established for dealing with critical issues such as defense, foreign...
of the state, both of which were unacceptable. The plan was also opposed because it would have required amending the constitution in significant ways. Croatia had also stated that it would not extend UNPROFOR’s mandate in Croatia past March 31. Croatia did accept the parts of the plan that concerned the establishment of Croatia
Croatia
Croatia , officially the Republic of Croatia , is a unitary democratic parliamentary republic in Europe at the crossroads of the Mitteleuropa, the Balkans, and the Mediterranean. Its capital and largest city is Zagreb. The country is divided into 20 counties and the city of Zagreb. Croatia covers ...
n sovereignty on its entire territory, return of the refugees, and local self-administration for the Serbian
Serbs
The Serbs are a South Slavic ethnic group of the Balkans and southern Central Europe. Serbs are located mainly in Serbia, Montenegro and Bosnia and Herzegovina, and form a sizable minority in Croatia, the Republic of Macedonia and Slovenia. Likewise, Serbs are an officially recognized minority in...
ethnic communities. However, Croatia rejected the aspects that exceeded the limits of constitutional provisions and international conventions on the rights of ethnic communities or minorities.
Reactions from Belgrade (Serbia)
The Krajina authorities refused to even consider the plan because it required reintegration with Croatia. Their official response, however, was that there would be a freeze on talks with Croatia until Croatia changed its attitude towards Krajina.The authorities in Belgrade accepted the plan but only on the conditions that sanctions against Yugoslavia were to be lifted; however, despite this, Krajina authorities still refused to accept the plan. In Yugoslavia, only the Serbian Renewal Movement
Serbian Renewal Movement
The Serbian Renewal Movement is a political party in Serbia.It was founded in 1990.In 1997 a dissident group abandoned the party and formed New Serbia....
called for outright acceptance of the plan. Slobodan Milošević
Slobodan Milošević
Slobodan Milošević was President of Serbia and Yugoslavia. He served as the President of Socialist Republic of Serbia and Republic of Serbia from 1989 until 1997 in three terms and as President of the Federal Republic of Yugoslavia from 1997 to 2000...
eventually stated that he agreed with the plan, but that it was up to the Krajina Serbs to accept or reject it. One reason Milošević said this was because Yugoslavia was planning at the time to diplomatically recognize Croatia, but this was unlikely to occur unless an agreement was reached between the Serbs in Krajina and the Croatian government. Milošević had some concerns about the plan because he believed that if Croatia accepted the plan in its initially unacceptable form, Yugoslavia may have been forced to accord the same status to Vojvodina
Vojvodina
Vojvodina, officially called Autonomous Province of Vojvodina is an autonomous province of Serbia. Its capital and largest city is Novi Sad...
, Kosovo
Kosovo
Kosovo is a region in southeastern Europe. Part of the Ottoman Empire for more than five centuries, later the Autonomous Province of Kosovo and Metohija within Serbia...
and Sandžak
Sandžak
Sandžak also known as Raška is a historical region lying along the border between Serbia and Montenegro...
.
In Belgrade
Belgrade
Belgrade is the capital and largest city of Serbia. It is located at the confluence of the Sava and Danube rivers, where the Pannonian Plain meets the Balkans. According to official results of Census 2011, the city has a population of 1,639,121. It is one of the 15 largest cities in Europe...
, Vojislav Šešelj
Vojislav Šešelj
Vojislav Šešelj, JD is a Serbian politician, writer and lawyer. He is the founder and president of the Serbian Radical Party and was vice-president of Serbia between 1998 and 2000...
(founder of the nationalist far-right Serbian Radical Party
Serbian Radical Party
The Serbian Radical Party is a far-right Serbian nationalist political party in Serbia, founded in 1991. Currently the second-largest party in the Serbian National Assembly, it has branches in three of the nations that currently border Serbia – all former federal republics of Yugoslavia...
) said that the self-proclaimed Serbian states in Croatia and Bosnia
Bosnia and Herzegovina
Bosnia and Herzegovina , sometimes called Bosnia-Herzegovina or simply Bosnia, is a country in Southern Europe, on the Balkan Peninsula. Bordered by Croatia to the north, west and south, Serbia to the east, and Montenegro to the southeast, Bosnia and Herzegovina is almost landlocked, except for the...
(the Republika Srpska
Republika Srpska
Republika Srpska is one of two main political entities of Bosnia and Herzegovina, the other being the Federation of Bosnia and Herzegovina...
) should declare a union between their two states. Other people called for Yugoslavia to recognize Krajina as being a state, just as Turkey
Turkey
Turkey , known officially as the Republic of Turkey , is a Eurasian country located in Western Asia and in East Thrace in Southeastern Europe...
did to the Turkish Republic of Northern Cyprus
Turkish Republic of Northern Cyprus
Northern Cyprus or North Cyprus , officially the Turkish Republic of Northern Cyprus , is a self-declared state that comprises the northeastern part of the island of Cyprus...
, and Albania
Albania
Albania , officially known as the Republic of Albania , is a country in Southeastern Europe, in the Balkans region. It is bordered by Montenegro to the northwest, Kosovo to the northeast, the Republic of Macedonia to the east and Greece to the south and southeast. It has a coast on the Adriatic Sea...
had done with the Republic of Kosova
Republic of Kosova
The Republic of Kosova was an secessionist state proclaimed in 1991 by a parallel parliament representing the Albanian population of Kosovo, recognized only by the Republic of Albania...
from 1990-1999.
Ultimate rejection
On August 2, negotiations took place in Geneva for Krajina to enter a political settlement with Zagreb. The basis for negotiations in Geneva was a modified version of the Z-4 plan which would treat the eastern and western part of Krajina equally. On August 2, Krajina Prime Minister Milan BabicMilan Babic
Milan Babić was from 1991 to 1995 the first President of the Republic of Serbian Krajina, a Croatian region at the time of the war largely populated by a Serbs of Croatia that wished to break away from Croatia.He was indicted for war crimes by the International Criminal Tribunal for the Former...
publicly declared his acceptance the Z-4 Plan through negotiations with U.S. Ambassador to Croatia Peter Galbraith. Croatia refused to acknowledge the plan's acceptance by Krajina authorities, since Krajina president Mile Martić refused even to receive plan.
Later appearances
- The current SerbiaSerbiaSerbia , officially the Republic of Serbia , is a landlocked country located at the crossroads of Central and Southeast Europe, covering the southern part of the Carpathian basin and the central part of the Balkans...
n government proposal regarding the status of Kosovo is a carbon copy of the Z-4 Proposal; this plan is often called "more than autonomy, less than independence" (it was first mentioned in 2004). - In 2005, the self-proclaimed Republic of Serbian Krajina Government in Exile called for Croatia to accept the Z-4 Plan.