The United Nations Confidence Restoration Operation in Croatia, commonly abbreviated UNCRO, was a United Nations (UN) peacekeeping mission in Croatia. It was established under Chapter VII of the United Nations Charter and approved by the UN Security Council (UNSC) Resolution 981 on 31 March 1995. UNCRO inherited personnel and infrastructure from the United Nations Protection Force (UNPROFOR). Its command was located in Zagreb; the peacekeeping troops were deployed in four sectors named North, South, East, and West. Twenty different countries contributed troops to the mission.

UNCRO started with more than 15,000 troops taken over from UNPROFOR; the personnel count was gradually reduced to approximately 7,000 by the end of the mission in early 1996. South Korean diplomat Byung Suk Min was the civilian head of the mission, while the military commanders of UNCRO were Generals Raymond Crabbe and Eid Kamal Al-Rodan. UNCRO was linked with UNPROFOR, which remained active in Bosnia and Herzegovina, and with the United Nations Preventive Deployment Force (UNPREDEP), which was deployed in the Republic of Macedonia. The mission was terminated on 15 January 1996 by UNSC Resolution 1025, passed on 30 November 1995. Sixteen UNCRO troops were killed, including four during Operation Storm in August 1995.

UNCRO was tasked with upholding the March 1994 ceasefire in the Croatian War of Independence, supporting an agreement on economic cooperation between Croatia and the self-declared Republic of Serbian Krajina (RSK), monitoring areas between opposing armies, monitoring the demilitarised Prevlaka peninsula, undertaking liaison functions, delivering humanitarian aid, and occupying 25 checkpoints along Croatia's international borders between RSK-held territory, the Federal Republic of Yugoslavia, and Bosnia and Herzegovina. UNCRO, like the UNPROFOR mission before it, was criticised for lacking sufficient troops and adequate resources to carry out the mission, and fulfilment of the mission's mandate proved nearly impossible.

Background

In 1990, following the electoral defeat of the Communist regime in Croatia, ethnic tensions worsened. After the elections, the Yugoslav People's Army (Jugoslovenska narodna armija, or JNA) confiscated the weapons of Croatia's Territorial Defence Force (Teritorijalna obrana, or TO) to minimise any resistance. On 17 August 1990, the tensions escalated to an open revolt of the Croatian Serbs, centred on the predominantly Serb-populated areas of the Dalmatian hinterland around Knin, and parts of the Lika, Kordun, Banovina and eastern Croatia regions. The Republic of Serbian Krajina (RSK), later established in those areas, declared its intention to integrate with Serbia, and was viewed by the Government of Croatia as a breakaway region. The JNA prevented Croatian police from intervening. By March 1991, the conflict had escalated into the Croatian War of Independence. In June, Croatia declared independence as Yugoslavia disintegrated, but implementation of the decision was postponed until 8 October by a three-month moratorium. A campaign of ethnic cleansing then began in the RSK; most non-Serbs were expelled by early 1993.

As the JNA increasingly supported the RSK, the Croatian police could not cope with the situation. In May 1991, the Croatian National Guard (Zbor narodne garde, or ZNG) was formed as the military of Croatia and was renamed the Croatian Army (Hrvatska vojska, or HV) in November. Late 1991 saw the fiercest fighting of the war, culminating in the Battle of the Barracks, the siege of Dubrovnik, and the Battle of Vukovar. In January 1992, a ceasefire agreement to implement the Vance plan was signed by representatives of Croatia, the JNA, and the UN, and fighting paused. The Vance plan was designed to stop hostilities in Croatia and allow negotiations by neutralizing any influence caused by fighting, but offered no political solutions in advance. The plan entailed deployment of the 10,000-person United Nations Protection Force (UNPROFOR) to the major conflict areas known as "UN Protected Areas" (UNPAs). UNPROFOR was tasked with creating a buffer between the belligerents, disarming Croatian Serb elements of the TO, overseeing JNA and HV withdrawal from the UNPAs, and return of refugees to the area. United Nations Security Council Resolution 743 of 21 February 1992 described the legal basis of the UN mission that had been requested and agreed upon in November 1991, and made no explicit reference to Chapter VI or Chapter VII of the United Nations Charter. Only a reference to Chapter VII would have permitted the peacekeeping force to enforce its mandate regardless of the level of cooperation of the belligerents.

Because of organisational problems and breaches of the ceasefire agreement, UNPROFOR did not start to deploy until 8 March and took two months to fully deploy in the UNPAs. Even though UNPROFOR had placed most heavy weapons of the Army of the Republic of Serb Krajina (ARSK) in storage controlled jointly by the UN and the RSK by January 1993, the force was unable to fulfil all of the provisions of the Vance plan, including disarmament of the ARSK, the return of refugees, restoration of civilian authority, and the establishment of an ethnically integrated police. It also failed to remove ARSK forces from areas outside the designated UNPAs which were under ARSK control at the time the ceasefire had been signed. Those areas, later known as the "pink zones", were supposed to be restored to Croatian control from the outset. Failure to implement this aspect of the Vance plan made the pink zones a major source of contention between Croatia and the RSK. In 1993, worried that the situation on the ground might become permanent, Croatia launched several small-scale military offensives against the RSK to seize significant local objectives and attract international attention. In response, the ARSK retrieved their weapons from the UN/RSK-controlled storage sites, reversing the only major success of UNPROFOR in Croatia.

Transition from UNPROFOR to UNCRO The UNPROFOR mandate was extended several times, in increments of up to six months, with consent of the government of Croatia. That changed in early 1995, when Croatian President Franjo Tuđman wrote to the Secretary-General of the United Nations informing him that Croatia would not accept further extensions of the mission once it expired on 31 March and asking that UNPROFOR leave Croatia by the end of June. At the time, it was established UN practice to seek consent of the country where its peacekeepers were deployed, and the letter effectively required UNPROFOR to withdraw completely from Croatia. Such action would also require abolishment of the UNPAs, which had been identified as integral parts of Croatia by United Nations Security Council Resolution 815 of 30 March 1993. Two days later, the Secretary-General reported to the United Nations Security Council (UNSC) that UNPROFOR was unable to implement important elements of the Vance plan, enforce a ceasefire, or protect its own vehicles against hijackings in the UNPAs.

On 31 January, US ambassador Peter Galbraith unsuccessfully tried to persuade Tuđman's aide Hrvoje Šarinić to accept another extension of the UNPROFOR mandate, explaining that the conflict would inevitably escalate once the UN force withdrew. This rebuff was followed by harsh French and UK diplomatic responses calling on the UN to ignore the Croatian decision, which resulted in Tuđman dismissing any extension of the mandate. The US Assistant Secretary of State for European and Eurasian Affairs, Richard Holbrooke, met Tuđman and suggested to him that if UNPROFOR was permitted to stay, Croatia could count on integration into the European Union and NATO. As a way out of the diplomatic row, Holbrooke proposed that UNPROFOR be replaced by a new mission using the same personnel and organisational structure. Following Croatian agreement, the UNSC adopted Resolution 981 establishing the United Nations Confidence Restoration Operation in Croatia (UNCRO), replacing UNPROFOR in the country. The new mission's name was devised by Under-Secretary-General of the United Nations Shashi Tharoor.

Mission

Mandate and functions The UNCRO mission was established under Chapter VII of the United Nations Charter. It was initially scheduled to end on 30 November 1995, and its mandate was to support implementation of a ceasefire agreed to by Croatia and the RSK on 29 March 1994, as well as an agreement on economic cooperation made on 2 December 1994. The former entailed monitoring areas between HV and ARSK forward positions, verification that specific types of heavy weapons were at least away from the forward military positions or placed in storage, maintenance of checkpoints, chairing Joint Commissions, and performance of liaison functions. The economic functions were supporting negotiation and implementation of further economic arrangements and facilitating and supporting activities aimed at opening of transport routes and power and water supply networks.

UNCRO was also tasked with delivery of humanitarian aid and control, monitoring, and reporting of any transport of military personnel, supplies, equipment, or weapons across UNCRO-staffed border checkpoints between RSK-held parts of Croatia on one side and Bosnia and Herzegovina or the Federal Republic of Yugoslavia on the other. There were 25 border checkpoints occupied and guarded by UNCRO. The mandate also directed UNCRO to monitor demilitarisation of the Prevlaka Peninsula at the entrance to the Bay of Kotor, according to the UNSC Resolution 779. Deployment of UNCRO was formally approved by the UNSC on 28 April. The mission was scheduled to be scaled down in June to 8,750 troops from the larger UNPROFOR force in the country.

UNCRO was criticised for several reasons. The Secretary-General's Report to the Council described the failures of UNPROFOR, but the new mission did not address them. There were insufficient troops, having been reduced from UNPROFOR levels by the new mission mandate, and inadequate human and material resources to carry out the mission tasks. As a result, fulfilment of the mission mandate was nearly impossible. While Croatian sources said that the mission name was the only real difference from UNPROFOR, the RSK authorities were not satisfied with the UNCRO mission. Specifically, the RSK objected to the deployment of UNCRO troops along the international borders and to the mission name. Conversely, Croats were pleased that the mission acronym appeared to be an abbreviation of Croatia. In response, Czech UNCRO troops used vehicle licence plates bearing the new mission's acronym when operating in HV-controlled territory and UNPROFOR plates in areas held by the ARSK due to safety concerns.

+UNSC resolutions relevant to UNCRO UNSC Resolution Date Notes981 31 March 1995 Establishment of UNCRO990 28 April 1995 Deployment of UNCRO994 17 May 1995 Implementation of UNCRO mission following Operation Flash1025 30 November 1995 Termination of UNCRO

Order of battle