annexed nearly all of Macedonia, and small areas of eastern Serbia and Kosovo. The dissolution of Yugoslavia, the creation of the NDH, Italian governorate of Montenegro and Nedic's Serbia and the annexations of Yugoslav territory by the various Axis countries were incompatible with international law in force at that time. The occupying forces instituted such severe burdens on the local populace that the Partisans came not only to enjoy widespread support but for many were the only option for survival. Early in the occupation, German forces would hang or shoot indiscriminately, including women, children and the elderly, up to 100 local inhabitants for every one German soldier killed. While these measures for suppressing communist-led resistance were issued in all German-occupied territory, it was only strictly enforced in Serbia. Two of the most significant atrocities by the German forces were the massacre of 2,000 civilians in Kraljevo and 3,000 in Kragujevac. The formula of 100 hostages shot for every German soldier killed and 50 hostages shot for every wounded German soldier was cut in one-half in February 1943 and removed altogether in the fall of that same year. Furthermore, Yugoslavia experienced a breakdown of law and order, with collaborationist militias roaming the countryside terrorizing the population. The government of the puppet Independent State of Croatia found itself unable to control its territory in the early stages of the occupation, resulting in a severe crackdown by the Ustaše militias and the German army. Amid the relative chaos that ensued, the Communist Party of Yugoslavia moved to organize and unite anti-fascist factions and political forces into a nationwide uprising. The party, led by Josip Broz Tito, was banned after its significant success in the post-World War I Yugoslav elections and operated underground since. Tito, however, could not act openly without the backing of the USSR, and as the Molotov-Ribbentrop pact was still in force, he was compelled to wait. Formation and early rebellion During the April invasion of Yugoslavia, the leadership of the Communist Party was in Zagreb, together with Josip Broz Tito. After a month, they left for Belgrade. While the Molotov–Ribbentrop Pact between Germany and the Soviet Union was in effect, the communists refrained from open conflict with the new regime of the Independent State of Croatia. In these first two months of occupation, they extended their underground network and began amassing weapons. In early May 1941, a so-called May consultations