Tito’s Partisans, anxious to gain political legitimacy, demonstrate the strength of their movement by convening the first meeting of the Anti-Fascist Council for the National Liberation of Yugoslavia (Antifasisticko vece narodnog oslobodjenja Jugoslavije, AVNOJ) at Bihac on November 26-27, 1942, to coordinate the military campaigns of Tito's Partisans and the administrative activities of local “liberation committees.”

A committee of communist and non-communist Partisan representatives from all over Yugoslavia, AVNOJ, a self-declared “temporary government,” links the acknowledgment of the ethnic plurality of the peoples of Yugoslavia with the reconstitution of Yugoslavia as a federation.