Investment in the welfare system

The Social Card Act, implemented in March 2022, established a national register for accurate socio-economic data to enhance social protection in Serbia. However, while the Act aims to ensure equitable welfare distribution, it has been criticised for its automated eligibility process, which leaves beneficiaries without input and perpetuates discrimination, the NSG notes.[1] The new system led to a 16,5% drop in the number of financial aid beneficiaries from March 2022 to August 2023, while Serbia has a persistent absolute poverty rate of 7%.[2] Critics, including the A11 Initiative, challenged the constitutionality of the Social Card Act over transparency and data protection concerns.[3] A11 and 48 members of parliament filed for a constitutional review, which was pending as of July 2023.[4] [5] Amnesty International reported that enforcement of the Act had led individuals (approx. 44000) to lose assistance due to incorrect data, and it recommended a review of potentially discriminatory outcomes.[6] In 2022, the provision of social services in Serbia grew significantly. Of 313 licensed providers, 261 were actively delivering services, up from just one in 2013. These services were available in 93.8% of municipalities. The services available include home assistance for the elderly, daily care services for at-risk youth, and respite care services for individuals with disabilities. Various other forms of support are available too, such as shelters and SOS hotlines catering to different demographics and needs.[7]

Égalité des sexes

The NSG notes that Serbia distinguished itself as a pioneer in gender-responsive budgeting by legally mandating it through the 2015 Budget System Act, which aimed to incorporate gender equality as a budgetary goal.[8] However, implementation challenges still arise due to incomplete frameworks and unmet actions from the 2022-2023 Action Plan that forms part of the 2021-2030 Gender Equality Strategy. The NSG highlights this Gender Equality Strategy as a key framework that seeks to address gender disparities and improve societal development through equal rights and effective policymaking.[9] Moreover, the Gender Equality Act, effective from June 2024, mandates gender-sensitive language in public administration, education, and public information. The gender-sensitive language mandate was opposed by, among others, the National Education Council, the Serbian Orthodox Church, and certain universities, which cited violations of linguistic norms.[10]

However, challenges persist for gender equality in Serbia. The country fell from 23rd to 38th place on the World Economic Forum (WEF) Global Gender Gap Index, despite a slight improvement in economic participation and opportunity.[11] Regional studies highlight that Serbian women encounter substantial barriers in the labour market, including discrimination and educational mismatches.[12] Amendments to the Act on Financial Support to Families with Children, effective from August 2023, extend maternity leave for third and subsequent children but still leave the solo self-employed and women with flexible contracts at a disadvantage.[13] Femicide remains a pressing issue in Serbia, with reports indicating persistent high rates.[14] Critics point out that data often underrepresent the extent of femicide, especially those cases involving marginalized groups such as LGBTQI+ people, refugees, and women in prostitution. Calls to make femicide a distinct criminal offence and improve protections have so far been unmet.[15]

Bonnes pratiques

The Government of Serbia's Coordinating Body for Gender Equality,

selecetd nine local governments as part of the project Key Steps of Gender Equality in Serbia, Phase 2. The Coordinating Body, in partnership with UN Women and funded by the EU, recognised these municipalities for their efforts in advancing gender equality and offered them support to develop new Local Action Plans for Gender Equality and implement one or more activities from the adopted plans. With this support, local governments and gender equality mechanisms will contribute to the promotion of gender equality and the improvement of women’s status in their communities. [16]

Éducation, formation et apprentissage tout au long de la vie

Serbia's education, training, and lifelong learning sectors encountered significant challenges over the last year, despite continuous reform efforts aimed at improvement. Serbia's education reforms have focused on improving education quality, teacher training, and infrastructure, with an emphasis on inclusivity. Specific programmes have supported Roma children with scholarships and mentorship to reduce dropout rates and enhance academic outcomes. However, there are significant regional disparities in educational access and quality, the NSG reports. Urban areas benefit from more schools and better resources, while rural areas struggle with fewer schools and limited opportunities for teachers to develop.[17] Consequently, urban students perform consistently better in standardised tests and have higher graduation rates than their rural counterparts.

Improving teacher training and professional development remains a critical challenge in Serbia, as many teachers lack access to essential continuous professional development opportunities. Programmes such as the Teacher Training Academy aim to enhance pedagogical skills through workshops and training sessions, but their effectiveness is limited by insufficient funding and logistical challenges. There are also challenges in integrating digital tools into Serbian education, which hinder students' acquisition of digital literacy. Many schools lack adequate resources, and teachers need more training to use the technologies effectively.[18] Serbia's Vocational Education and Training (VET) system struggles to align the skills it teaches to job market demands, resulting in high unemployment rates among graduates. Its dual education programmes seek to address this, but their early-stage implementation requires significant investment and collaboration with industry.[19] Amendments to the Dual Education Act, effective from September 2023, aim to improve Serbia's dual education model through stakeholder collaboration. Changes include a new Learning through Work Programme, increased workplace learning hours, fixed remuneration for work-based learning, and the introduction of training alliances and centres.[20] The NSG notes that, despite efforts to promote lifelong learning and adult education, participation rates remain low due to lack of awareness, financial constraints, and time limitations.

Inclusion des migrants, des réfugiés, des demandeurs d'asile et des minorités

In July 2023, Serbia's National Assembly amended the Asylum Act and the Act on the Employment of Foreigners to improve refugees' and asylum seekers' access to rights, facilitate foreign nationals' employment, and align with EU standards on migration. The revised Foreigners Act now allows asylees residing continuously in Serbia for over three years to apply for permanent residence under less stringent conditions. These revisions significantly improve labour market access for refugees, asylum seekers, and those with subsidiary and temporary protection, including victims of human trafficking, the NSG notes. However, refugees and asylum seekers face significant challenges in accessing housing, education, healthcare, and employment due to inadequate resources and support services. Lengthy asylum procedures and a backlog of cases add to their uncertainty, while discrimination and xenophobia hinder integration, which has an impact on asylum seekers’ mental health and social connections. To promote economic independence and social integration, targeted programmes are needed for language learning, vocational training, cultural orientation, and psychosocial support.

In March 2023, temporary protection for individuals displaced from Ukraine was extended until March 2024.[21] Between January and June 2023, the Asylum Office granted temporary protection to 198 applicants, mainly from Russia, Armenia, Libya, Georgia, and Lithuania.[22] These beneficiaries gained immediate access to the labour market, and work permit fees were reduced in some cases. In 2023, Serbia continued to face challenges integrating Roma communities, despite initiatives such as the National Strategy for Social Inclusion of Roma and alignment with the EU Roma Strategic Framework (2020-2030). These efforts target housing, education, employment, and health to combat antigypsyism and promote socio-economic integration. However, Roma people, especially women, girls, and internally displaced persons, still face marginalisation and discrimination, which limit their access to education, jobs, and public services. In addition, Serbia struggles to ensure equal rights for people with disabilities. Issues include multiple forms of discrimination, a lack of universal design in public spaces, and barriers to inclusive education and employment. Concerns persist over the legal capacity of people with intellectual disabilities and conditions in social care institutions. Efforts are underway to amend accreditation standards to make higher education more inclusive, but more improvements are needed to enhance service access and address rights violations in employment .[23] The NSG points to the 2022–2026 Strategy on Deinstitutionalisation and Development of Community-Based Services as a positive development. This strategy aims to promote social inclusion and prevent unnecessary institutionalisation (primarily of those people with intellectual and mental disabilities). The 2023–2024 Action Plan for the Implementation of the 2022-2026 Strategy for Deinstitutionalization and Development of Community-Based Social Protection Services. had been initiated but not yet adopted by the end of the reporting period.

Chômage chez les jeunes

Employment and participation among youth increased from 2015 to 2019, while unemployment declined, according to the 2021–2026 Employment Strategy, which aims to improve youth inclusion in the labour market.[24] Youth unemployment has fallen in Serbia over the past decade, especially among those aged 25 to 29, due to factors including emigration and improved education, according to the National Employment Service.[25]

The 2021–2026 Employment Strategy aims to address youth employment issues by implementing the Youth Guarantee to provide under-25s with employment, education, apprenticeships, or traineeships within four months of unemployment or leaving education. This aligns Serbia with EU standards, and the guarantee has been extended to people up to age 29 in regions with limited opportunities.[26] The government is rolling out the Youth Guarantee from 2024, and it includes pilot programmes targeting youth and marginalized groups such as women, people with disabilities, and the long-term unemployed.[27]

The My First Salary initiative was launched as part of the Government Decree on Fostering Youth Employment and has significantly bolstered youth employability since 2020. The programme, which expanded remuneration rates in 2023 and received commendation from the European Commission[28], aims to integrate 10,000 young adults into the workforce by subsidizing their salaries and providing mentorship.[29] The National Youth Council of Serbia's 2023 Alternative Report underscores the struggles of youth in finding secure employment and their inclination to seek better opportunities abroad due to dissatisfaction with the availability of contract-based jobs. Many face precarious conditions without formal employment, and they lack social security and adequate living standards. The 2021–2026 Employment Strategy[30] acknowledges the rise of flexible work arrangements and advocates for legislative review to safeguard labour and social rights against arbitrary employer interpretations. Such a review will require coordinated efforts among government, employers, and youth advocates.

[1] A11 Initiative (2022), Anti-Social Cards: https://www.a11initiative.org/en/antisocial-cards/

[2] A11 (2022), We explain (some) myths about the Social Card: https://www.a11initiative.org/objasnjavamo-neke-mitove-o-socijalnoj-karti/

[3] A11 (2022), The Initiative for the Constitutional Review of the Law on Social Card has been submitted: https://www.a11initiative.org/en/the-initiative-for-the-constitutional-review-of-the-law-on-social-card-has-been-submitted/

[4] A11 (2022), Support grows for A 11 constitutional challenge to the Social Cards Law: https://www.a11initiative.org/en/support-grows-for-a-11-constitutional-challenge-to-the-social-cards-law/

[5] Ne davimo Beograd (Don’t Let BelgradeD(r)own) (2023)We are seeking a constitutional review of the Social Card Act (25.07.2023) https://nedavimobeograd.rs/dordevic-trazimo-ocenu-ustavnosti-zakona-o-socijalnoj-karti/

[6] Amnesty International (2023), Serbia - Trapped by automation: Poverty and discrimination in Serbia’s welfare state: https://www.amnesty.org/en/latest/research/2023/12/trapped-by-automation-poverty-and-discrimination-in-serbias-welfare-state/

[7] Republic Institute for Social Protection (2023), Report on Social Welfare Services at the Local Level Provided by Licensed Service Providers in 2022: https://www.zavodsz.gov.rs/media/2638/izvestaj-o-uslugama-socijalne-zastite-na-lokalnom-nivou-koje-pruzaju-licencirani-pruzaoci-usluga-u-2022.pdf  

 [8] Gender-responsive budgeting refers to a way of planning and spending money that ensures both men and women benefit equally.

[9] SAI (2023), Report on the Audit of Business Expediency – Establishing Gender Responsive Budgeting in the Republic of Serbia: https://www.dri.rs/storage/newaudits/2023-2-SV%20Uspostavljanje%20rodno%20odgovornog%20budzetiranja%20u%20RS.pdf

[10] Biznis  (2023), Will entrepreneurial moms be equated with employed women in 2023: https://biznis.rs/vesti/srbija/da-li-ce-mame-preduzetnice-u-2023-biti-izjednacene-sa-zaposlenim-zenama/

[11] World Economic Forum (2023), Global Gender Gap Report 2023: https://www.weforum.org/publications/global-gender-gap-report-2023/

[12] BFPE (2022), Economic (Non)Power of Women in the Labor Market in the Western Balkans, Democracy for Development: https://en.bfpe.org/analysis-and-publications/economic-non-power-of-women-in-the-labor-market-in-the-western-balkans/

[13] Mom’s rule (2023), Five years of fighting for women, children, youth, and families:  https://www.mamesuzakon.org/pet-godina-borbe-za-zene-decu-mlade-i-porodice/

[14] Femplatz (2023), Report on women's rights and gender equality in Serbia for 2023, p.101: https://femplatz.org/library/reports/2024-03-19_PreneraZena_2023_SR.pdf   

[15] RFE (2023), Protest against femicide in Belgrade: “No more women”: https://www.slobodnaevropa.org/a/protest-protiv-femicida-u-beogradu-nijedna-zenavise/32287071.html

[16] Pravni portal (2023), Article Advancing gender equality at the local level, https://www.pravniportal.com/unapredenje-rodne-ravnopravnosti-na-lokalu/

[17] Statistical Office of the Republic of Serbia (2024), Education: https://www.stat.gov.rs/en-US/oblasti/obrazovanje

[18] Statistical Office of the Republic of Serbia (2024), Education: https://www.stat.gov.rs/en-US/oblasti/obrazovanje

[19] Delegation of the European Union in the Republic of Serbia (2013), Second chance program: https://europa.rs/druga-sansa-za-bolju-buducnost/

[20] Official Gazette of RS No. 76/2023 (2023) Law on Amendments to the Law on Dual Education: https://www.paragraf.rs/izmene_i_dopune/070923-zakon-o-izmenama-i-dopunama-zakona-o-dualnom-obrazovanju.html

[21] Official Gazette of the RS No. 21/2023-44 (2023), Decision Amending the Decision on the Provision of Temporary Protection in the Republic of Serbia to Persons Displaced from Ukraine: https://www.paragraf.rs/propisi/odluka-o-pruzanju-privremene-zastite-raseljenim-licima-koja-dolaze-iz-ukrajine.html

[22] Belgrade Center for Human Rights (2023), Right to asylum in the Republic of Serbia, Report for January -June 2023: https://azil.rs/azil_novi/wp-content/uploads/2023/09/Pravo-na-azil-u-Republici-Srbiji-Izvestaj-za-period-januar-jun-2023.pdf

[23] Protector of Citizens (2023), Regular Annual Report of the Protector of Citizens for 2022: https://www.ombudsman.org.rs/index.php?option=com_content&view=article&id=739:the-protector-of-citizens-submitted-the-regular-annual-report-for-2022-to-the-national-assembly&catid=44&Itemid=4

[24]  Government of the Republic of Serbia, Ministry of Labour, Employment, Veterans and Social Affairs (2021), Employment Strategy of the Republic of Serbia 2021-2026, (Official Gazette of the Republic of Serbia, No.18/21 and 36/21 -correction):  http://demo.paragraf.rs/demo/combined/Old/t/t2021_03/SG_018_2021_003.htm

[25] Commissioner for Human Rights of the Council of Europe (2023), Report following her visit to Serbia from 13 to 17 March: https://rm.coe.int/report-on-serbia-by-dunjamijatovic-commissioner-for-human-rights-of-t/1680ac88cc

[26]KOMS(2022), Youth Guarantees: Experience and Opportunities: https://koms.rs/2022/04/garancije-za-mlade-iskustvo-i-mogucnosti/

[27] KOMS (2023), Alternative Report on the Status and Needs of Youth in the Republic of Serbia for 2023: https://koms.rs/publications/

[28] European Commission (2023) Serbia 2023 Report: https://neighbourhood-enlargement.ec.europa.eu/system/files/2023-11/SWD_2023_695_Serbia.pdf

[29] Mario Reljanović’s, Peščanik  (2020), My first salary: https://pescanik.net/moja-prva-nadnica/

[30] Government of the Republic of Serbia, Ministry of Labor, Employment, Veterans and Social Affairs (2021) Employment Strategy of the Republic of Serbia 2021-2026: https://socijalnoukljucivanje.gov.rs/wp-content/uploads/2021/08/Strategija_zaposljavanja_u_Republici_Srbiji_2021-2026_engleski.pdf

Salaires adéquats

The annual minimum wage threshold - the lowest hourly rate that can be legally paid to workers - has grown significantly in recent years. This is determined by the Social and Economic Council.[1] The minimum wage changed in 2023 with respect to 2022, and both gross and net average salaries increased notably.[2] The highest net salaries were in sectors such as computer programming, scientific research, petroleum extraction, and financial services. Salary increases were particularly notable in regions such as Belgrade, where average wages were also highest at 106,746 RSD. That suggests stronger economic activity and potentially higher demand for skilled labour in Belgrade than in regions with lower wages, such as Šumadija and Western Serbia, where the average was 70,165 RSD.[3]

In September 2023, Serbia’s government raised the minimum wage from 230 to 271 RSD per hour. Despite trade unions' push for a higher increase to match the rise in price of the minimum consumer basket, their proposals were rejected, amid ongoing tensions over wage adequacy as costs and consumer prices rise.[4] [5] Women in Serbia continue to face a significant wage gap: their wages average 20% less than those of men, despite their higher level of education.[6] This disparity persists despite legal protections against unequal pay outlined in Article 34 of the Gender  Equality Act. Roma women, women with disabilities, and women living in rural areas encounter especially pronounced economic challenges. Roma girls under 18 often marry early, which restricts their access to education and employment opportunities.[7] Women living in rural areas, despite their extensive daily labour and household responsibilities, frequently lack the opportunity to own land or enter formal employment.[8]

La sécurité d'emploi

In the second quarter of 2024, the total number of employed amounted to 2,367,170. Compared to the same quarter of the previous year, total registered employment increased by 0.1%.[9] In the same period the number of unemployed was 257,800, while the number of people outside the labour force was 2,484,400.[10] highlights as a positive development the Decent Work Country Programme (DWCP) 2019–2022 [11], which aims to address challenges such as high youth unemployment, gender gaps, informal employment, and poverty risk. It outlines priorities such as updating labour laws, improving dispute resolution, strengthening labour organisations, implementing a national employment strategy, and improving working conditions.

However, the lack of a universal legal framework outlining regulations for decent work is concerning, the NSG notes, as the Labour Act only partially regulates decent work. The International Labour Organization's (ILO) definition of decent work includes fair wages, job security, social protection, personal growth, and equal opportunities.[12]  The ILO's Decent Work Agenda focuses on increasing employment, promoting workers' rights, enhancing social protection, and fostering social dialogue. Serbia is lagging behind in these areas.[13] In fact, the lack of decent work is evident in the neglect of the 8-8-8 formula (for hours a day of work, rest, and personal time). The situation is even worse for atypical workers, as shown by a report by FairWork 2023.[14] This revealed that platforms including Glovo, Wolt, Mr. D, and Yandex largely failed to ensure decent work, and that workers working through these platforms often earned below a living wage and faced dangerous work and job insecurity .[15] In 2023, Serbian trade unions and CSOs [16] lobbied for labour law reforms by 2024 to improve working conditions and workers' wellbeing. Their Workers Proclamation called for better regulation of employment relationships, the eradication of poverty, fair wealth distribution, dignity at work, and the abolition of Sunday work (except for essential services). They also urged enhanced roles for the Social and Economic Council, better protection of individual and collective rights, fair collective bargaining, and improved oversight through labour courts and inspectors.[17]

Occupational health and safety

Serbia made significant strides in Occupational Health and Safety (OHS) in 2023, by ratifying international conventions such as the Occupational Safety and Health Act (OSHA) and ILO Conventions No. 187 and No. 167. It also adopted a comprehensive new OHSA law, which introduced stricter regulations, including mandatory education for OHS advisors, licensing for OHS professionals, and measures for remote workers. However, Serbia's Labour Inspectorate, with only 214 inspectors for over 400,000 entities, needs greater resources and staff numbers to enforce these new standards effectively.[18] In Serbia, the Labour Act provides crucial protections for workers under 18, parents, and people with disabilities or health issues. The Act also strictly prohibits the termination of female workers’ employment during pregnancy or maternity leave and emphasizes employers' obligations to support breastfeeding breaks (Arts. 89–93).[19] The Labour Act in Serbia sets the age of majority at 18 but allows employment from age 15, while prohibiting under-18s from hazardous work. It also mandates that workers diagnosed with health issues must be reassigned to suitable roles or receive severance compensation if reassignment is not possible.

Économie sociale et solidaire

In 2023, Serbia's social and solidarity economy (SSE) grew thanks to the work of cooperatives, social enterprises, and mutual aid societies focused on sustainability. Despite support from the Social Entrepreneurship Act, progress was hindered by delays in implementing necessary regulations. By year-end, about 50 social enterprises had been recognised of an estimated 1,200 awaiting recognition, highlighting challenges in fully developing the sector. This growth is enhancing the economy and social landscape by creating jobs, supporting marginalised groups, and addressing local needs through sustainable practices. The Coalition for Solidarity Economy Development (CoSED) has been a pivotal force in Serbia's social economy, driving legislative advances such as the Law on Social Entrepreneurship. It also provides crucial capacity-building through training and resources for social entrepreneurs, while forging partnerships with financial institutions to offer access to finance through social-impact bonds and microfinance programmes.

The social and solidarity economy is challenged by regulatory uncertainties and limited access to finance. To grow, it needs comprehensive policies and innovative financing solutions. Capacity-building and public awareness are also vital to support enterprise management and sector expansion. Despite significant financial allocations amounting to 135 million RSD for SSE development initiatives, citizen associations are excluded from economic contests and have difficulty in registering for multiple economic activities. Stakeholders recommend tailored competitions, educational programmes for officials, and improved policies to systematically support the growth of social enterprises in Serbia.[21]

Bonnes pratiques

The WISEs4Youth project aims to enhance social entrepreneurial skills among young people in the Western Balkans through training and mobility activities. As part of this initiative, a group of young potential social entrepreneurs visited companies in Albania, Serbia, Croatia, North Macedonia, and Slovenia. These enterprises were chosen by project partners to showcase successful social business models, highlighting their diversity and positive social impact.[22] [23] [24]

L'équilibre travail-vie

Serbia has ratified nearly all ILO conventions on weekly rest and paid leave, showcasing its commitment to international labour standards. However, for specific contextual reasons, Serbia withdrew from some conventions and did not ratify others. The Labour Act[25] in Serbia limits the standard workweek to 40 hours and restricts overtime to an additional eight hours per week. This framework ensures a work-life balance and includes breaks and rest periods to maintain workers' health and productivity. The Labour Act mandates a minimum 12-hour rest period within any 24-hour period and a paid weekly rest period of 24 hours, usually on Sunday, though this can also be taken on another day.

These provisions reflect Serbia’s commitment to promoting a healthy work-life balance and aligning with European labour standards, the NSG notes. However, Serbia’s selective ratification reflects its unwillingness to fully align with international standards.

Dialogue social

Social dialogue remains weak in Serbia, especially concerning the involvement of social partners in relevant policy developments, the European Commission said in its Serbia 2023 Report.[26] Social dialogue faced several challenges in Serbia. Representation is a prominent problem and comes in the form of fragmented trade unions, difficulties for employers' associations in addressing small- and medium-sized enterprises (SMEs), and limited unified bargaining power. Another challenge is the lack of influence social dialogue has on broader economic policies. For instance, economic austerity measures lacked adequate consultation with social partners, while the large informal economy narrows the reach of formal social dialogue mechanisms, leaving many workers uncovered by formal negotiations. The implementation and enforcement of agreements were inconsistent, and emerging issues such as remote work highlighted the need for adaptive frameworks to address evolving labour market trends.

In 2023, the UN Committee on Economic, Social and Cultural Rights expressed concern over Serbia's restrictive provisions on the right to strike under the current Strike Act, and it urged revisions to better align with international standards.[27] Worker dissatisfaction was evident in several strikes.[28] [29] [30] [31] [32] The Labour Minister’s adviser  allegedly interfered with a strike in the Kragujevac company Energetika,   ordering union representatives to abandon their strike.[33] Some unions reached agreements with the government after the strikes, but others continued their disputes.[34] [35] [36] [37]

[1] Social and Economic Council of the Republic of Serbia (2024), Minimum wage: http://www.socijalnoekonomskisavet.rs/eng/minimalna%20zarada%20eng.htm

[2] World Economic Forum (2023), Global Gender Gap Report 2023: https://www.weforum.org/publications/global-gender-gap-report-2023/

[3] Statistical Office of the Republic of Serbia (2023) Notification under the number 4.  Average salaries per employed, municipalities and cities:

https://publikacije.stat.gov.rs/G2023/HtmlL/G20231319.html 

[4] Danas (2023), There is no agreement, the minimum in the future will be as determined by the Government of Serbia - the trade unionists are considering the next steps: https://www.danas.rs/vesti/ekonomija/vlada-srbijesindikalci-minimalac-dogovor/

[5] Ministry of Domestic and Foreign Trade (2023), Purchasing power of the population, consumer basket: https://must.gov.rs/tekst/sr/378/potrosacka-korpa.php

[6] Biznis (2022), Women over 45 have a harder time finding jobs and are more often laid off: https://biznis.rs/preduzetnik/zene-starije-od-45-godina-teze-dolaze-do-posla-i-cesce-dobijaju-otkaz/

[7] Biznis (2022), Women over 45 have a harder time finding jobs and are more often laid off: https://biznis.rs/preduzetnik/zene-starije-od-45-godina-teze-dolaze-do-posla-i-cesce-dobijaju-otkaz/

[8] NALED (2022), More than 90% of women in the countryside own no land whatsoever/ https://naled.rs/en/vest-vise-od-90-zena-na-selu-nema-ni-metar-zemljista-u-svom-vlasnistvu-7195

[9] Statistical Office of the Republic of Serbia (2024) Registered employment in Serbia, (II quartal 2024) https://www.stat.gov.rs/sr-latn/vesti/statisticalrelease/?p=15226&a=24&s=2402?s=2402

[10] Statistical Office of the Republic of Serbia (2024) Labour Force Survey (II quartal) https://www.stat.gov.rs/sr-latn/vesti/statisticalrelease/?p=15270&a=24&s=2400?s=2400

[11] M. Reljanović, S. Bradaš (2019), Indicators of Decent Work in Serbia – Analysis of the Normative Framework and Practice: https://library.fes.de/pdf-files/bueros/belgrad/15771.pdf  

[12] ILO (1999), Report of the Director-General: Decent Work in Proceedings of the International Labour Conference, 87 Session: https://webapps.ilo.org/public/english/standards/relm/ilc/ilc87/rep-i.htm

[13] Sarita Bradas (2017) Statistics and Decent Work – A Critical Analysis of the Political Interpretation of Labor Statistics:  http://www.centaronline.org/userfiles/files/publikacije/fcd-analiza-statistika-i-dostojanstven-rad.pdf

[14] Fairwork and Public Policy Research Centre (2023), Fairwork Serbia Ratings 2023: https://fair.work/wp-content/uploads/sites/17/2023/09/Fairwork-Serbia-Ratings-2023-EN-FNAL.pdf

[15]   Fairwork and Public Policy Research Centre (2023), Fairwork Serbia Ratings 2023: https://fair.work/wp-content/uploads/sites/17/2023/09/Fairwork-Serbia-Ratings-2023-EN-FNAL.pdf

[16] The Association of Autonomous Vojvodina Trade Unions, Alliance of Autonomous Novi Sad City and Municipal Trade Unions, the United Trade Unions of Serbia “Sloga”, Centre for Dignified Work, Zrenjanin Social Forum, Kragujevac “Nova svetlost” Association, A11– Initiative for Economic and Social Rights, Centre for the Politics of Emancipation, Centre for Democracy Foundation and the Centre for Modern Skills.

[17] Centre for Democracy Foundation  (2023), Commit yourself! - Workers' proclamation 2023:  http://www.centaronline.org/sr/dogadjaj/12951/obavezite-se-radnicki-proglas-2023

[18] MLEVSI (2023), Report on the Work of the Labour Inspectorate: https://www.minrzs.gov.rs/sr/dokumenti/ostalo/izvestaji-o-radu/planinspekcijskog-nadzora

[19]  HRLAB (2022), Special protection of motherhood: https://www.hrlab.rs/hr-blog/novosti/posebna-zastita-materinstva

[20] ASTRA (2023), Safe Work – A Mobile Application for the Prevention of Labor Exploitation: https://astra.rs/en/labour-exploitation/

[21] KoRSE (2023) Round table on social entrepreneurship held in Novi Sad: https://solidarnaekonomija.rs/okrugli-sto-o-socijalnompreduzetnistvu-odrzan-u-novom-sadu/

[22] IDC (2024), WB Social Economy All stars compound: https://idcserbia.org/en/publikacije/western-balkans-social-economy-all-stars-compound-wises4youth/

[23] IDC (2024), Sustainability Roadmap: https://idcserbia.org/en/publikacije/sustainability-roadmap-of-social-enterprises-wises4youth/-economy-all-stars-compound-wises4youth/

[24] IDC (2024), Toolkit for social entrepreneurs: https://idcserbia.org/en/publikacije/wises4youth-toolkit-for-social-entrepreneurs/

[25] Official Gazette of the Republic of Serbia (2018) Labour Act: https://www.paragraf.rs/propisi/employment-act-republic-serbiahtml

[26] European Commission (2023), Serbia 2023 Report: https://neighbourhood-enlargement.ec.europa.eu/system/files/2023-11/SWD_2023_695_Serbia.pdf

[27] United Nations Committee on Social, Economic and Cultural Rights (2022), Concluding observations on the third periodic report of Serbia: https://digitallibrary.un.org/record/3969915?ln=en&v=pdf

[28] RFE (2023), Serbia Bor Mine Protests Working Conditions Wages: https://www.rferl.org/a/serbia-bor-mine-protests-working-conditions-wages/32221562.html

[29] Euronews Serbia (2023), After the tragedy at the school in Vračar, several educational unions announced a work stoppage for tomorrow: https://www.euronews.rs/srbija/drustvo/86384/nakon-tragedije-u-skoli-na-vracaru-viseprosvetnih-sindikata-za-sutra-najavilo-obustavu-rada/vest

[30] Blic (2023), Salaries in education are one of the key questions of the fall: The budget foresees an increase, and how much do teachers earn now?: https://www.blic.rs/biznis/moj-novcanik/povecanje-plata-u-prosveti-2023/tmrbm91

[31] N1 (2023), The union of employees in social protection again announces a protest and warning strike: https://n1info.rs/biznis/sindikat-zaposlenih-u-socijalnoj-zastiti-opet-najavljuje-protest-i-strajk-upozorenja/

[32] N1 (2023), Agreement between the Post Office and the Trade Union "Radnik": Payment of the salary difference for October on December 15: https://n1info.rs/biznis/dogovor-poste-i-sindikata-radnik-isplata-razlike-plate-za-oktobar-15-decembra/

[33] Puls Šumadije (2023), Savetnica ministra preti sindikalcima Energetike Kragujevac da odustanu od štrajka: https://pulssumadije.com/savetnica-ministra-preti-sindikalcima-energetike-kragujevac-da-odustanu-od-strajka/

[34] USPRS (2023), Protest by educators, submitted requests to the Government of Serbia https://www.usprv.org.rs/2023/09/

[35] NSPRS (2023), Today is a warning strike in schools:  https://nsprs.org/2023/11/13/danas-je-strajk-upozorenja-u-skolama/

[36] Confederation of Autonomous Trade Unions of Serbia (2023), The Government of Serbia and the health unions have reached an agreement: https://sindikat.rs/2023/11/23/vlada-srbije-i-zdravstveni-sindikati-postigli-sporazum/

[37] Euronews (2023), Ministry of Defense: Representatives of the Military Union present malicious and political accusations: https://www.euronews.rs/srbija/drustvo/94767/ministarstvo-odbrane-predstavnici-vojnogsindikata-iznose-zlonamerne-i-politikanske-optuzbe/vest

Logement

Serbia's housing crisis revealed deep-rooted issues in 2023, including a shortage of affordable housing, poor urban planning, and widespread informal settlements. Economic pressures and a weak legal framework make the situation worse. This is corroborated by significant social inequalities, such as half the population living in overcrowded conditions, endangering their right to adequate housing.[1] The Social Protection Act provides general support for individuals and families in need, but it does not specifically address homelessness or the housing needs of vulnerable groups. Homelessness has rarely been a public focus in Serbia, and only a few CSOs and associations actively address the issue by setting up shelters, day centres, and mobile services for essential goods.

The exact number of homeless people in Serbia is unclear due to imprecise census methods identified 445 primary homeless individuals and 17,800 secondary homeless.[2] The Red Cross and other organisations estimate that there are between 5,000 and 15,000 homeless people in Serbia, but these figures remain uncertain due to registration issues and inadequate definitions. The Temporary and Permanent Residence Act complicates access to rights and assistance, and eviction protections are often insufficient. The 2019–2025 Draft Social Protection Strategy has significant flaws, including a lack of detailed mapping and ineffective measures to address extreme poverty and hunger.[3] However, it had not been adopted by the end of 2023.

Éradication de la pauvreté

The at-risk-of-poverty rate in Serbia was 20% in 2022, a 1.2 percentage-point decrease from the previous year, according to the Statistical Office of the Republic of Serbia (SORS). The risk-of-poverty-or-social-exclusion rate was 28.1%, slightly lower by 0.3 percentage point. Despite these improvements, the high risk of poverty indicates that many people still struggle with low incomes and social exclusion. Moreover, the SORS categories appear to have been set arbitrarily and applied in a way that disregards certain marginalised groups experiencing poverty which leads to a biased optimistic picture, potentially complicating the assessment of true poverty levels, the NSG reports.

Serbia's budget for active labour market policies has been insufficient, at just 0.1% of GDP in 2023. As a result, only 23.5% of the registered unemployed benefited from these policies in 2022, and less than 5% accessed subsidised activation measures. Consequently, many workers or people seeking employment choose to emigrate, and the working-age population decreased in 2022.[4]

The war in Ukraine has significantly worsened poverty in Serbia, impacting vulnerable families and children in particular through rising food and energy prices, according to a report by UNICEF Serbia and the Serbian Association of Economists. Serbia is one of Europe's 10 least-equal countries in terms of income, with a Gini coefficient of 33.3 in 2021. The wealthiest 20% earn six times more than the poorest 20%. Children in Serbia are more likely to live in poverty than any other age group.[5] The 2022 inflation rate was 11.9%, mainly driven by rising food and energy prices, which severely impacted low-income households that spend most of their income on these essentials. The cost of living in Serbia is rising faster than income, effectively nullifying recent salary increases, a UNICEF assessment revealed. Although the average salary nominally increased by 14.6% from July 2022 to July 2023, the real increase was only 1.9% due to inflation.[6]

Accès aux soins de santé

There are significant concerns over the Serbian health system, raising urgent questions about its standards. The system ranked 59th out of 195 countries on the 2021 Global Health Security Index. Particularly troubling, it was 33rd out of 44 European countries. Health services in Serbia are distributed unequally, and rural residents are particularly disadvantaged. Many face poverty and have difficulty accessing doctors in municipal outpatient clinics. The decline in the number of healthcare professionals, which was made critical by the ban on new employment in the public sector became dramatically evident during the COVID-19 pandemic, has further exacerbated the problem. The brain-drain of doctors and nurses put additional pressure on the sector. [7]

The Serbia at Your Fingertips – Digital Transformation for Development project includes a health pillar, the Health Documentation and Records Act, which has been effective since 4 November 2023. This regulates the management of health documentation to ensure data accuracy and patient confidentiality. The law introduced the e-Health Record, which gives GPs and patients streamlined access to comprehensive treatment histories, prescriptions, and lab results. More significantly, it makes healthcare more efficient and accessible.[8] Over the last year, issues with Serbia's legal framework for organ transplantation persisted. The Equality Commissioner urged Health Minister Danica Grujičić to amend laws in order to allow organ and tissue transplants from deceased donors. These amendments were drafted but not submitted to parliament.[9] 

[1] As the NGOs CK13 Youth Centre, A11 – Initiative for Economic and Social Rights, ADRA Serbia, Lice ulice, KlikAktiv – Centre for the Development of Social Policies and PIN – Psychosocial Innovation Network emphasised in their appeal in November 2022.

[2] Primary homelessness refers to people living on the streets or in places not meant for human habitation, while secondary homelessness includes those staying in temporary, unstable accommodations such as shelters or with friends and family.

[3] Centre for Democracy Foundation (2019), Analysis of the draft social protection strategy for the period 2019 to 2025: http://www.centaronline.org/userfiles/files/publikacije/FCD-Analiza-Nacrta-Strategije-socijalne-zastite-Ivan-Sekulovic.pdf

[4] European Commission (2023) Serbia 2023 Report: https://neighbourhood-enlargement.ec.europa.eu/system/files/2023-11/SWD_2023_695_Serbia.pdf

[5] UNICEF (2023), UNICEF calls for increasing the coverage and adequacy of financial assistance programmes, including child allowance: https://www.unicef.org/serbia/en/press-releases/unicef-calls-increasing-coverage-and-adequacy-financial-assistance-programmes

[6] Statistical Office of the Republic of Serbia (2023), Average salaries and wages per employee: https://www.stat.gov.rs/en-US/vesti/statisticalrelease/?p=13804&a=24&s=2403?s=2403

[7] K. Petovar (2020) Ban on Employment in the Public Sector – Consequences in the Health Care Sector for Citizens' Protection:  http://www.centaronline.org/userfiles/files/publikacije/fcd-ksenija-petovar-zabrana-zaposljavanja-u-javnom-sektoru-posledice-u-sektoru-zdravstvena-zastita-gradjana.pdf

[8] NALED (2023), eHealth Record is coming – the Law on Health Documentation adopted: https://naled.rs/en/vest-stize-ekarton-usvojen-zakon-o-zdravstvenoj-dokumentaciji-8433

[9] Equality Commissioner (2023), Initiative for amendments to the Law on Transplantation of Human Organs and the Law on Human Cells and Tissues submitted: https://ravnopravnost.gov.rs/en/initiative-for-amendments-to-the-law-on-transplantation-of-human-organs-and-the-law-on-human-cells-and-tissues-submitted/

The CIVICUS Monitor classifies Serbia’s civic space as "Obstructed," a status that has remained unchanged since 2019.[1] This classification indicates that civic space in Serbia is restricted by authorities through surveillance, harassment, and public statements against civil society. Peaceful assemblies are often met with excessive police force, while journalists risk attacks and defamation charges, leading to self-censorship despite some media independence.

Espace de liberté pour les organisations de la société civile

In its Serbia 2023 Report, the European Commission highlighted the need for improved cooperation between the government and civil society, as well as better funding transparency for civil society organisations (CSOs).[2] Despite implementing the 2022-2030 Strategy to support CSOs, progress remains limited, and verbal attacks – by high-level officials among others – on these organisations continues. While consultations with civil society have increased, the Commission criticized Serbia for not publishing results of the new strategy and for not allowing sufficient time for public input on draft laws.

Several serious attacks were carried out on Serbian civic associations and activists, mainly targeting advocates for human rights and tolerance and critics of the government. These attacks, often carried out by right-wing groups or public officials, undermine democracy by restricting civil society's role in promoting transparency and human rights. Notable incidents included the vandalism of organisations like the Pride Info Centre and the Youth Initiative for Human Rights[3]  and attacks on other groups through antisemitic[4] and threatening messages.[5] [6]

Civic Initiatives and BIRN uncovered a scandal involving the embezzlement of €5 million from public funds intended for media, civil society, and youth projects. Their investigation revealed that funds were diverted to private accounts through fake organisations and reportings, exposing significant flaws in the legal framework and fund allocation processes.[7] [8] Serbia faced significant civic unrest and protests during the period monitored, including large "Serbia against violence" demonstrations following mass shootings. The government attempted to downplay the significance of these demonstrations, while the ruling Serbian Progressive Party held counterprotests.[9] [10] [11] Civil society groups also organised protests over issues including corruption, environmental degradation, and workers' rights, amid increasing right-wing attacks and harassment of activists.[12] [13] [14]

Participation des OSC au dialogue civil

The National Convent on the European Union (NCEU), a forum for public debate,  continued to play a key role in Serbia’s EU accession process. The NCEU groups more than 850 member organisations (including CSOs) to advocate for reforms to align Serbia with EU standards. It received recognition from both the European Commission and the Serbian government.[15] The Human Rights Committee highlighted concerns that Serbia's Public Assembly Act might hinder the right to freedom of assembly. It recommended a review to ensure compliance with the International Covenant on Civil and Political Rights (ICCPR). However, the Serbian government did not address this call for a review in its fourth periodic report on implementing the ICCPR, and it failed to address follow-up questions from the Human Rights Committee, raising concerns about potential rights violations.[16]

[1] CIVICUS (2023), Serbia: https://monitor.civicus.org/country/serbia/

[2] European Commission (2023), Serbia 2023 Report: https://neighbourhood-enlargement.ec.europa.eu/system/files/2023-11/SWD_2023_695_Serbia.pdf

[3] YIHR  (2023), YIHR Offices Attacked on Sunday: https://yihr.rs/en/napadnute-prostorije-inicijative-mladih-za-ljudska-prava/

[4] Blic (2023), Kukasti krst na tablama Građanskog pokreta “Bravo” u Novom Sadu: https://n1info.rs/vesti/kukasti-krst-na-tablama-gradjanskog-pokreta-bravo-u-novom-sadu/

[5] European Commission (2023), Serbia 2023 Report: https://neighbourhood-enlargement.ec.europa.eu/system/files/2023-11/SWD_2023_695_Serbia.pdf

[6] Danas (2023), Youth student action targeted with posters with Ustasha symbols in Novi Sad: https://www.danas.rs/vesti/drustvo/plakatima-sa-ustaskim-oznakama-u-novom-sadu-targetirana-omladinsko-studentska-akcija/

[7] BIRN (2023), Fake payments, fictitious lectures: How millions of euros for the vulnerable ended up in other people's pockets: https://birn.rs/milioni-evra-izvuceni-na-javnim-konkursima-za-mlade-i-decu/

[8] Civic Initiatives (2023), Civic initiatives and BIRN reveal: Millions of abuses at competitions. Ministries of Family Care and Demography:https://www.gradjanske.org/konferencija-za-medije-milionske-zloupotrebe-na-konkursima-ministarstva-za-brigu-o-porodici-i-demografiju/

[9] Deutsche Welle (2023), The most massive protests in the recent history of Serbia: https://www.dw.com/sr/najmasovniji-protesti-u-novijoj-istoriji-srbije/a-65683865

[10] Nocars (2023), Vučić: Precisely counted, there were 9,000 people at the protest: https://nova.rs/vesti/politika/vucic-precizno-izbrojano-na-protestu-bilo-9-000-ljudi/

[11] Kudrevičius and others v. Lithuania [GC], ECtHR, App. no. 37553/05 (2015), para. 91 and Djavit An v. Turkey, ECtHR, App. no. 20652/92 (2003), para. 56: https://hudoc.echr.coe.int/eng#%7B%22itemid%22:[%22001-158200%22]%7D

[12] N1 (2023), Citizens' protest in Pancevo due to the ammonia spill and polluted air: https://n1info.rs/vesti/protest-gradjana-u-pancevu-zbog-izlivanja-amonijaka-i-zagadjenog-vazduha/

[13] RFE (2023), The anti-fascist cafe "Crni ovan" in Novi Sad was attacked again: https://www.slobodnaevropa.org/a/crni-ovan-napad-kafic-novisad/32639549.html

[14] Novars (2023), Vučić violated the Criminal Code by revealing information about Professor Jovanović: Threatened sentence of one to three years in prison: https://nova.rs/vesti/politika/vucicprekrsio-krivicni-zakonik-odavanjem-podataka-o-profesoru-jovanovicu-zaprecena-kazna-odjedne-do-tri-godine-zatvora/

[15] National Convent on the European Union (2024): ”About the Convention”: https://eukonvent.org/o-nama/o-konventu/ 

[16] European Commission (2023), Serbia 2023 Report: https://neighbourhood-enlargement.ec.europa.eu/system/files/2023-11/SWD_2023_695_Serbia.pdf

Decent jobs in the green transition

The EU's Carbon Border Adjustment Mechanism (CBAM) imposes a tax on imports based on their carbon emissions, presenting an opportunity for Serbia, the NSG points out.[1] By investing in decarbonisation and accurate GHG emissions reporting, Serbian industries can avoid these taxes, stay competitive in the EU market, and drive growth while advancing Serbia’s climate policies.[2] Serbia's Climate Change Act regulations, led to progress with the December 2023 publication of the Rulebook on the measurement, reporting, and verification (MRV) system for GHG emissions. Due to incomplete by laws, the system was not fully operational by the end of 2023, though the Ministry of Environmental Protection began training companies for a new e-GHG system to monitor and manage green house gas emissions in an electronic format .[3]However, the Climate Change Act only partially aligns with EU Emissions Trading System (ETS). As a result, electricity producers in Serbia will not be granted free CO2 emission allowances for the 2021–2030 period and that Serbia will not have access to the Modernisation Fund. This will strain the industry, necessitating a transitional period and deviation from the transposition of the target legislation regulating the EU ETS. The CBAM requires importers to report GHG emissions: its transitional period began on 1 October 2023, and full implementation is expected in 2026. The Serbian Chamber of Commerce organised sectoral training sessions in 2023 to help companies prepare.

Serbia currently lacks a carbon pricing system like the EU’s ETS, but it must establish one by 2030 to meet its Energy Community obligations and qualify for CBAM exemptions. This highlights the need for prompt action to avoid penalties and stay competitive in the EU market.[4]

Accès à l’énergie et précarité énergétique

Serbia advanced its commitment to energy and climate goals in December 2023, by adopting the Integrated National Energy and Climate Plan (INECP) and the Strategic Environmental Impact Assessment Report. These outlined targets and measures for renewables, energy efficiency, and GHG emissions reduction.[5] Also in 2023, Serbia amended the Use of Renewable Energy Sources Act, easing the procedure for renewable energy suppliers to win auctions and to boost clean energy production and ensure system security.[6] In 2022, Serbia updated its Nationally Determined Contribution (NDC) to cut GHG emissions by 33.3% from 1990 levels, but the updated NDC lacked public consultation. Serbia has submitted its 2nd Biennial Update Report and 3rd National Communication to the UNFCCC, but the Climate Change Act does not address the NDC or related reporting obligations.[7]

The Serbian government adopted the Low Carbon Development Strategy for 2023–2030 in June 2023, aiming to reduce emissions and increase energy efficiency.[8] The Strategy aims to meet international climate obligations and highlights delays and deficiencies in the Climate Change Act. These include partial transposition of the EU’s ETS and a lack of access to the Modernisation Fund, both of which will challenge industry and require adjustments.[9] [10] In December 2023, the government adopted the 2023–2030 Climate Change Adaptation Programme, which outlines measures to mitigate the impacts of climate change on key sectors and includes an action plan for 2024–2026.[11] The European Commission's Serbia 2023 Report recognised this as a positive step, noting that, while implementation is still in its early stages, the Ministry of Environmental Protection has made progress by adopting eight out of 12 required by-laws.[12]

[1] Chamber of Commerce and Industry of Serbia (2023), CBAM – Carbon Border Adjustment Mechanism: Key issues and guidelines: https://api.pks.rs/storage/assets/Brosura%20CBAM2.PDF

[2] Belgrade Open School (BOS), 2023, CBAM - Carbon tax; Whoever does not pay on the bridge will pay on the bridge, pp. 30–31: https://zazivotnusredinu.bos.rs/rs/publikacije-bos/94/165/cbam---porez-na-ugljenik_-ko-ne-plati-na-mostu-platice-na-cupriji.html

[3]Ministry of Environmental Protection (2023),The Ministry invites plant operators to training for the use of the e-GHG platform – the information system for ETS plants:  https://www.ekologija.gov.rs/saopstenja/najave/ministarstvo-poziva-operatere-postrojenja-na-obuku-za-koriscenje-e-ghg-platforme-informacionog-sistema-za-ets-postrojenja

[4] Belgrade Open School (2023), If you don’t pay at the bridge, you’ll pay at the crossing p.27: https://downloads.bos.rs/publikacije/CBAM.pdf

[5] Ministry of Mining and Energy (2023), Integrated National Energy and Climate Plan of the Republic of Serbia for the period 2030 with the projections up to 2050: https://www.ekologija.gov.rs/sites/default/files/2023-11/low_carbon_development_strategy_of_the_republic_of_serbia_for_the_period_2023-_2030_with_projections_until_2050.pdf11/low_carbon_development_strategy_of_the_republic_of_serbia_for_the_period_2023-_2030_with_projections_until_2050.pdf

[6] CEE Energy News (2023) , Serbian parliament adopts amended RES framework: https://ceenergynews.com/renewables/serbian-parliament-adopts-amended-res-framework/

[7] Koalicija27 (2023), A Green Agenda with no Agenda: Shadow Report on Chapter 27: https://www.koalicija27.org/en/shadow-reports/

[8] Ministry of Mining and Energy  (2023), The Government of the Republic of Serbia adopted the Low Carbon Development Strategy until 2030: https://www.ekologija.gov.rs/saopstenja/vesti/vlada-republike-srbije-usvojila-strategiju-niskougljenicnog-razvoja-do-2030-godine

[9] Balkan Green Energy News  (2023), Serbia adopts Low Carbon Development Strategy: https://balkangreenenergynews.com/serbia-adopts-low-carbon-development-strategy/

[10] Serbian Government (2019), The negotiating position of the Republic of Serbia for the Intergovernmental Conference on the Accession of the Republic of Serbia to the European Union for the Chapter: https://www.mei.gov.rs/srl/dokumenta/eu-dokumenta/pristupni-pregovori-sa-eu/pregovaracke-pozicije/pregovaracke-pozicije-za-poglavlje-27/

[11] Ministry of Environmental Protection  (2023), The Adaptation Program to Changed Climate Conditions with an Action Plan was adopted: https://www.ekologija.gov.rs/saopstenja/vesti/usvojen-program-prilagodjavanja-na-izmenjene-klimatske-uslove-sa-akcionim-planom

[12] The list of by-laws necessary for the implementation of the Climate Change Act is available on the website of the Ministry of Environmental Protection https://www.ekologija.gov.rs/lat/dokumenta/klimatske-promene/uredbe-i-pravilnici