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In a Memorandum from August 14, 1941 the OUN (B) proposed to the Germans, to create a Ukrainian Army “which will join the German Аrmy ... until the latter will win” (preferable translation: "which will unite with the German Army ... until [our] final victory"), in exchange for German recognition of an allied Ukrainian independent state.
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However, these proposals were not accepted by the Germans, and by the middle of September 1941 the Germans began a campaign of repression against the most proactive OUN members.
At the beginning of October 1941, during the first OUN Conference, the OUN formulated its future strategy. This called for transferring part of its organizational structure underground, in order to avoid conflict with the Germans. It also refrained from open anti-German propaganda activities.[41][dubious – discuss] At the same time, the OUN tried to infiltrate its own members into and create its own network within the German Auxiliary police.
A captured German document of November 25, 1941 (Nuremberg Trial O14-USSR) ordered: "It has been ascertained that the Bandera Movement is preparing a revolt in the Reichskommissariat which has as its ultimate aim the establishment of an independent Ukraine. All functionaries of the Bandera Movement must be arrested at once and, after thorough interrogation, are to be liquidated..."
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At the Second Conference of the OUN(B), held in April 1942, the policies for the “creation, build-up and development of Ukrainian political and future military forces” and “action against partisan activity supported by Moscow” were adopted. Although German policies were criticized, the Soviet partisans were identified as the primary enemy of OUN (B).[43]
In July 1942 OUN (B) issued a statement in which it stated that the main enemy targeted was “Moscow”, while Germany was criticized for its policy concerning the Ukrainian independent state. Until December 1942, OUN (B)'s principal activity was propaganda and the development of its own underground network; at that time, actions against the Germans were described as undesirable and provocative.
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Despite the stated opinions of Dmytro Klyachkivsky and Roman Shukhevych that the Germans were a secondary threat compared to their main enemies (the communist forces of the Soviet Union and Poland), the Third Conference of the Organization of Ukrainian Nationalists - held near Lviv from 17–21 February 1943 - took the decision to begin open warfare against the Germans (OUN fighters had already attacked a German garrison earlier that year (7 February)). Accordingly, the OUN (B) leadership on March 20, 1943 issued secret instructions ordering their members who had joined the German auxiliary police (Ukrainische Hilfspolizei) in 1941-1942 to desert with their weapons and join with UPA units in Volyn. This process often involved engaging in armed conflict with German forces as they tried to prevent desertion. The number of trained and armed soldiers who now joined the ranks of the UPA was estimated to be between 4 and 5 thousand. Initially, the military formation of the OUN under Bandera's leadership was called the "military detachment of OUN (SD)" but after April 1943 the name "Ukrainska Povstanska Armiya" (UPA) was adopted as the official title.
Anti-German actions were limited to situations where the Germans attacked the Ukrainian population or UPA units.[48] Indeed, according to German Eastern Front General Ernst Kostring, UPA fighters "fought almost exclusively against German administrative agencies, the German police and the SS in their quest to establish an independent Ukraine controlled by neither Moscow nor Germany."[49]
During the German occupation, the UPA conducted hundreds of raids on police stations and military convoys. In the region of Zhytomyr insurgents were estimated by the German General-Kommissar Leyser to be in control of 80% of the forests and 60% of the farmland.[50] The UPA was able to send small groups of raiders deep into eastern Ukraine.
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In June 1943 German SS and police forces under the command of General von dem Bach-Zelewski, chosen by Himmler and seen as an expert in anti-guerrilla warfare, attempted to destroy UPA-North in Volyn during Operation "BB" (Bandenbekämpfung).
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From July through September 1943, as a result of an estimated 74 clashes between German forces and the UPA, the Germans lost over 3,000 men killed or wounded while the UPA lost 1,237 killed or wounded. In the fall of 1943, clashes between the UPA and the Germans declined, so that Erich Koch in his November 1943 report and New Year 1944 speech could mention that “nationalistic bands in forests do not pose any major threat” for the Germans.
In autumn 1943 some detachments of the UPA attempted to find rapprochement with the Germans. Although doing so was condemned by an OUN/UPA order from November 25, 1943, these actions did not end.[61] In early 1944 UPA forces in several Western regions engaged in cooperation with the German Wehrmacht, Waffen SS, SiPo and SD. However, in the winter and spring of 1944 it would be incorrect to state that there was a complete cessation of armed conflict between UPA and German forces, because the UPA continued to defend Ukrainian villages against the repressive actions of the German administration.
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The UPA, fighting a two-front war against both the Germans and approaching Soviets (as well as Soviet partisans), did not focus all of its efforts against the Germans. Indeed, it considered the Soviets to be a greater threat. Adopting a strategy analogous to that of the Chetnik leader General Draža Mihailoviæ, the UPA limited its actions against the Germans in order to better prepare itself for and engage in the struggle against the Communists. Because of this, although the UPA managed to limit German activities to a certain extent, it failed to prevent the Germans from deporting approximately 500,000 people from Western Ukrainian regions and from economically exploiting Western Ukraine. Due to its focus on the Soviets as the principal threat, UPA's anti-German struggle did not contribute significantly to the liberation of Ukrainian territories by Soviet forces.