Due to their inability to import foreign SAM systems, in 1958 Yugoslavia initiated a program to develop an indigenous missile at the Belgrade Military Technical Institute.

[1] The development of the launcher and radar system was inspired by the Japanese Kappa meteorological sounding rocket imported into Yugoslavia.

[1] For operational use, there existed the possibility of using more sophisticated radar equipment,[1] and for terminal guidance the missile would switch to independent homing by infrared sensors in its nose cone.

[1] Concurrently, with the R-25 testing in 1962 the SFRY acquired S-75 Dvina (Russian: С-75; NATO reporting name: SA-2 Guideline), missile systems from the Soviet Union.

[1] As such, by the end of 1964 the decision was made to abandon the Vukan project that produced a total of twelve missiles.