 Milošević claimed that he opposed a confederal system but also declared that should a confederal system be created, the external borders of Serbia would be an "open question", insinuating that his government would pursue creating an enlarged Serbian federal republic if Yugoslavia was decentralized.In 1989, the autonomy of SAP Kosovo and SAP Vojvodina were "de facto" abolished by constitutional reforms that transferred powers away from the provinces to the Serbian government.Milošević rejected the independence of Croatia in 1991, and even after the formation of the Federal Republic of Yugoslavia (FRY), it too did not initially recognize Croatia's independence.