Inclusion of migrants, refugees, asylum seekers, minorities, and vulnerable groups 

Croatia is short of workers, and a growing number have come from abroad in recent years. In 2023, a total of 172,499 residence and work permits were issued, which is a 39%increase from 2022.[1] In addition to immigrant workers from traditional countries of origin such as Serbia, Bosnia and Herzegovina, North Macedonia, and Kosovo, an increasing number are arriving from more distant countries, including Nepal, the Philippines, India, Bangladesh, Uzbekistan, and Egypt.

However, current inclusion policies do not adequately reflect this trend. Foreign workers in Croatia face significant challenges due to language barriers and misconceptions over legal regulations. For example, many mistakenly view their residence and work permits as employment contracts. The Ombudswoman of the Republic of Croatia – an independent commissioner appointed by the Croatian Parliament to promote and protect human rights, combat discrimination, and report irregularities under the Whistleblowers' Protection Act – has documented numerous rights violations related to employment conditions of foreign people. To address them, the Ombudswoman, currently Tena Šimonović Einwalter, published an online document in Croatian and 11 other languages commonly spoken by workers from more-distant third countries: "Information for (foreign) workers - How to protect your rights at the workplace".[2] [3] In 2023, the City of Zagreb also organised a free Croatian language course as part of its implementation of the Action Plan for the Implementation of the Charter on Integrating Cities.[4] However, limited places were available on the course due to financial constraints. Demand was also high, as no national-level courses were available. In 2024, the Croatian Employment Service co-financed language courses for specific groups by introducing the "Voucher for learning the Croatian language" scheme, but this excluded people under international protection.[5]

Overall, therefore, the level of inclusion of migrants and asylum seekers in Croatia is poor, the NSG reports. In late 2023, Croatia, along with seven other countries, received a warning from the European Commission for not fully implementing the Seasonal workers Directive. In Croatia, the process for obtaining long-term residency can take two years or sometimes even longer. This far exceeds the legal requirement of 60 days.

In 2023, Croatia granted asylum to 50 people and subsidiary protection to two. This figure contrasts starkly with the 68,114 individuals who sought international protection in the country that year. In addition, 897 people were returned to Croatia from other EU countries under the Dublin procedure.[6] Moreover, the Reception Centre for International Protection Applicants in Zagreb faced criticism in 2023 for unhygienic and overcrowded conditions, which were highlighted by a YouTube video from an asylum seeker and confirmed by inspections ordered by the Ombudswoman. Issues included overcapacity and insufficient number of maintenance staff. These factors led to unsanitary conditions and health risks such as scabies and bed bugs, which affected both residents and caregivers.[7] In addition, the Reception Centre for International Protection Applicants in Zagreb suffered from a critical shortage of doctors and health workers between May and August 2023, when Médecins du Monde's services were interrupted. The shortage was caused by funding delays for EU Asylum and Migration Fund (AMIF) projects managed by the Croatian Red Cross and Médecins du Monde, the sole organizations providing services at the shelter. This interruption exacerbated the already dire conditions, severely impacting the health and wellbeing of residents.

[1] Ministry of the Interior (2024), Statistics issued for residence and work permits for the year

2023: https://mup.gov.hr/gradjani-281562/moji-dokumenti-281563/stranci-333/statistika-169019/169019

[2] The Ombudswoman (2024) Report of the Ombudswoman for 2023: https://www.ombudsman.hr/wp-content/uploads/2024/05/Izvjesce-pucke-pravobraniteljice-za-2023._-1.pdf

[3] The Ombudswoman (2023), Information for (foreign) workers - How to protect your rights at the

workplace?: https://www.ombudsman.hr/hr/informacije-za-strane-radnike-kako-zastititi-svoja-prava-na-radnom-mjestu/

[4] Integrating cities (2024), Eurocities Integrating Cities Charter: https://integratingcities.eu/charter/

[5] Croatian Employment (2024), Voucher for learning Croatian language: https://vauceri.hzz.hr/en/

[6] Ministry of the Interior (2023), Statistical indicators of applicants for international protection until

December 31, 2023: https://mup.gov.hr/pristup-informacijama-16/statistika-228/statistika-trazitelji-medjunarodne-zastite/283234

[7] The Ombudswoman (2024), Report of the Ombudswoman for 2023:

https://www.ombudsman.hr/wp-content/uploads/2024/05/Izvjesce-pucke-pravobraniteljice-za-2023._-1.pdf

Adequate wages 

After significant growth in Croatia’s nominal and real wages early in 2023, the pace slowed for the rest of the year. A one-time wage increase for public and civil servants in July 2023 accelerated wage growth in the public sector, but wage growth in the private sector decelerated.[1] In the second half of 2023, average gross wages in Croatia increased nominally by about 4.7%, respectively, with smaller increases in inflation-adjusted (real) terms of 1.7 %.[2] In the first quarter of 2024, average gross salaries grew by 6% in nominal terms from the previous quarter. The gap between nominal and real wage growth came amid significant inflation in goods and services such as food and non-alcoholic beverages, restaurants and hotels, and healthcare. The increased costs in these essential categories disproportionately affect households with lower incomes.

Wage growth varied by sector, according to the NSG. While the median net and gross wages saw nominal increases of 12.9% and 13.6%, respectively, real wage growth was heavily affected by inflation. The biggest increase in prices is recorded in sectors such as food and non-alcoholic beverages (8.8% increase), restaurants and hotels (12%), health (6.2%), and recreation and culture (5.9%). In terms of wage distribution, the clothing production sector saw a nominal wage decrease of 1.7%, representing a significant real wage decline. Other low-wage sectors, such as textile production, leather goods manufacturing, wood processing, furniture production, and personal services (e.g., dry cleaning, hair salons), experienced modest nominal wage growth ranging from 2.5% to 4.9%, which fell below inflation rates, leading to a real wage drop. 

Apart from these above-mentioned activities, in all others where a nominal drop in wages was recorded, the average gross wage is still above €2,000 a month, which is significantly above the Croatian average.[3] In 2023, the poverty risk threshold was annual income of €5,924 for a single person and €12,440 for a household of two adults and two children. Croatia's in-work at-risk-of-poverty rate rose to 6.2% in 2023 from 4.7% in 2022, though the NSG expects this to decrease in early 2024 after an increase in the minimum wage.[4]

In 2024, the minimum gross monthly salary in Croatia increased by €140 from 2023, aligning more closely with EU standards for fair minimum wages as defined by the Adequate Minimum Wages Directive.[5] Other legislative changes at the beginning of 2024 included amendments to the Income Tax Act that increased the personal salary deduction and raised the income tax threshold, resulting in a slight increase in net incomes. However, the NSG warns that these changes could reduce government revenues from income tax, potentially eroding welfare services.[6]  In early 2024, major changes in the public and state sectors included a new Law on Salaries that simplifies the system by dividing 245,000 workers into 16 pay grades and introducing performance-based supplements of up to 30%. However, concerns were raised over the abbreviated legislative process and limited public consultation, as key elements were implemented through decrees and regulations.

[1] Croatian National Bank (2023), Makroekonomska kretanja i prognoze (Macroeconomic

developments and forecasts): https://www.hnb.hr/c/document_library/get_file?uuid=430396a0-6e21-0217-1e91-041409d7d0be&groupId=20182&p_auth=OKzZVokR

[2] Croatian Bureau of Statistics (2024), Average Monthly Net and Gross Earnings of Persons

in Paid Employment, by Accounting Periods, 2023, Zagreb: https://podaci.dzs.hr/2023/en/58126

[3] Croatian Bureau of Statistics (2024), Average Monthly Net and Gross Earnings of Persons

in Paid Employment for March 2024: https://podaci.dzs.hr/2024/en/76882

[4] Eurostat (2024), In-work at-risk-of-poverty rate: https://ec.europa.eu/eurostat/databrowser/view/tesov110/default/table?lang=en

[5] Official Gazette Nr. 125/2023 (2023), Decree on the amount of the minimum wage for 2024: https://narodne-novine.nn.hr/clanci/sluzbeni/2023_10_125_1740.html

[6] Official Gazette Nr. 114/2023 (2023), Law on Amendments to the Law on Income Tax: https://narodne-novine.nn.hr/clanci/sluzbeni/2023_10_114_1609.html

Housing

Croatia’s real estate market continues to present significant challenges, the NSG reports. These particularly affect vulnerable demographics such as youth, precarious workers, pensioners, people with disabilities, seekers of international protection, foreign workers, and members of the Roma minority. The government announced in April 2023 a National Plan for Housing Policy up to 2030, aimed at addressing issues such as affordable housing and high utility costs. But concerns remain over the plan's lack of transparency in the production of the plan. In addition, civil society organizations and local governments, which are essential for implementing the plan effectively, are not consulted. At the moment of the drafting of the report, the National Plan is still not finalised. In the second half of 2023, the average price per square metre of new apartments in Croatia rose to €2,278, a 4%  increase from 2022.[1] Affordability declined, with average salary earners needing nearly the equivalent of two months of work to buy one square metre. High property prices and unregulated rentals make it difficult for young people to buy homes. In 2023, the poverty risk rate among tenants soared to 31.7%, up 5.5 percentage points from 2022, due mainly by the increasingly high costs of renting, exacerbated by the many informal rental agreements that leave tenants unprotected. In contrast, the poverty risk rate among apartment owners rose just 1.1 percentage points to 18.9%.[2] Croatia's 2023 housing loan subsidy programme, designed to assist with mortgage repayments, has faced criticism, mainly because it directs public funds to private banks: it has reimbursed €187 million in loans to citizens so far .[3] The programme also encourages borrowing and is only available to those with established credit histories, as noted by the Ombudswoman.[4] Moreover, Croatia's lack of a real estate tax incentivizes wealthy citizens to invest in property as a way of avoiding the impact of economic fluctuations, contributing to high vacancy rates and inflated purchase and rental prices. About 50,000 apartments in Zagreb are unused, and a low flat-tax rate encourages short-term rentals, in particular aimed at tourism.

Of 7,229 state-owned apartments, 1,373 were vacant as of December 2023 and required significant investments to become habitable, according to the Ombudswoman. In 2023, 23 state apartments were sold, and no rental tenders were issued.[5] In addition, social housing is not paid systematic attention, especially for groups in vulnerable situations such as the homeless and victims of domestic violence. Regulations are fragmented, making it difficult to assess and address the problem comprehensively. Moreover, social housing policies vary widely among local and regional governments, leading to significant territorial disparities. A housing care programme in the towns of Petrinja, Glina, and Sisak closed all container settlements for those left homeless by the 2020 earthquake, relocating more than 1,000 people to more suitable housing. The programme spent €13.1 million on rent and temporary accommodation for over 2,000 affected individuals. Lastly, housing conditions for foreign workers in Croatia remain inadequate. Many live in substandard apartments or container settlements near their workplaces. Proposed amendments to the Law on Foreigners aim to improve these conditions, but concerns over enforcement persist due to insufficient capacity at the state inspectorate.[6]

Good practice

The Ombudswoman commends the collaboration between Državne Nekretnine (a state-owned company that manages properties) and the Croatian Institute for Social Work. The initiative provides
one-time financial assistance to cover utilities when citizens in weaker financial circumstances are unable to do so.[7]

Poverty eradication

Croatia's at-risk-of-poverty and social exclusion rate rose from 18% in 2022 to 19.3% in 2023, while the EU average for 2023 was 21.4%.[8] [9] The rate among children increased slightly, and it was high for single-parent families (24.4%) and the elderly (34.8%), especially those living alone (59.9%). Among the over-65s, women were more affected than men.[10] The average net pension was 13 % higher in March 2024 than in May 2023, but the median net pension was lower, leaving many pensioners below the poverty line. To supplement their income, around 28,735 pensioners worked part-time as of April 2024. The government also provided multiple one-time cash benefits throughout 2023 to mitigate rising living costs, effectively turning these payments into recurring support for pensioners.[11] At the end of April 2024, only 17.6% of the registered unemployed received unemployment benefits.[12] However, the maximum unemployment compensation currently leaves recipients below the poverty line. In her 2023 annual report, the Ombudswoman highlighted that the base for calculating minimum social welfare benefits in Croatia had not been adjusted for nearly two years and so had failed to keep pace with the rising cost of living. She also raised concerns over the decline in these benefits’ coverage of the poor and recommended an analysis of the decreasing number of beneficiaries receiving minimum compensation.[13] According to the Social Welfare Act, recipients of the guaranteed minimum benefit in Croatia may be required to perform 60 to 90 hours of unpaid community service per month to retain their benefits. The NSG criticizes this as forced labour that deprives beneficiaries of basic labour rights. The Centre for Peace, Nonviolence and Human Rights – Osijek and the Centre for Peace Studies challenged this measure's constitutionality in December 2023.[14] One positive change that became effective in July 2023 was the abolition of the practice of registering claims on the real estate of benefit recipients as security against unjustified payments. However, slow processing times due to staffing shortages continue to burden the system. This has caused significant delays in resolving user requests, especially for urgent benefit approvals, as noted in the Ombudswoman's annual report.[15]

However, income-based indicators such as the at-risk-of-poverty rate do not fully capture living conditions, according to the NSG, which highlights this as a cause for concern. Material deprivation indicators reveal that 41.4% of households cannot cover unexpected expenses, and 39.4% cannot afford a week's vacation away from home. Homelessness is another critical problem. The government estimates that between 400 and 500 people are homeless, but this contrasts sharply with the Croatian Homeless Network's estimate of 2,000. The disparity influences policy and is a factor in the absence of a national strategy for combating homelessness and in the insufficient availability of shelter. The criminalization of vagrancy and begging exacerbates issues perpetuating stigma and worsening marginalisation, while bureaucratic hurdles make it harder for homeless individuals to access social welfare and healthcare services, including basic health insurance.[16] [17] [18]

Access to quality healthcare

The quality and availability of healthcare in Croatia are declining, and complaints to the Ombudswoman have risen 54% over the last five years. In 2023, many citizens struggled to access healthcare due to the unavailability of service, shortages of doctors, lack of information, administrative obstacles, or a slow system that fails to meet patient need.[19] Mandatory health insurance theoretically covers the entire Croatian population: employed people contribute to healthcare funds for everyone in society through a solidarity-based indirect contribution on their gross salary, and exemptions for economically inactive individuals and vulnerable groups are funded by state budget transfers. However, the NSG highlights significant practical difficulties for citizens. In 2023, an average of 4,107,750 persons in the system were insured, the Croatian Institute for Health Insurance (CIHI) reported.[20] Amendments to the Law on Compulsory Health Insurance in April 2023 required unemployed insured persons to report to the CIHI every three months to confirm their employment status.[21] This led nearly 106,000 people to lose their coverage in July (the cut-off date) for non-compliance.[22] The NSG considers these rules discriminatory. Similar criticisms prompted the Ombudswoman to request a constitutional review. In fact, many people cannot report in person due to disability, health, or financial constraints, and the law does not provide for exceptions. Though the CIHI promised exemptions for serious health issues, this is not legally mandated, so there is a risk of arbitrary decisions by officials.

The majority of healthcare providers in Croatia are still publicly owned, but the number of private providers is growing. The public system faces significant staffing problems, particularly in primary healthcare. There is a notable shortage of personnel in family medicine, healthcare for preschool children, women's healthcare, and dental medicine. The Croatian healthcare system’s ageing workforce is a critical problem, as 16% of doctors are over 60 and 4% are retirees working part-time. In addition, 147 doctors left Croatia in 2023.[23] The lack of medical personnel contributes to long waiting lists for diagnostic and therapeutic procedures, impacting healthcare access and timely treatment. Despite these challenges, no body has been established to monitor healthcare human resources, and the last strategic plan expired in 2020. In 2023, the Ministry of Health announced a reform to reduce waiting times by year-end by hiring external collaborators, opening additional clinics in the afternoon and on Saturdays, and increasing the availability of appointments.[24] However, the NSG reports that even if this target were met, the system would still be inadequate. The shortage particularly affects rural areas, which complicates access to healthcare. Since 2016, some doctors have been allowed to work in both public and private practice, but the NSG criticises this as harmful: patients face long waits in the public sector due to lack of staff, and so often have to pay for private care.

Croatia’s cancer mortality rate is higher than the EU average, even though the cancer incidence rate is aligned with the rest of the EU. This disparity is attributed to inadequate access to healthcare, a shortage of health professionals and radiotherapy centres, limited treatment capacity, poor care coordination, insufficient palliative care beds, and delays in implementing the National Palliative Care Development Program (2023-2026). Community-based mental health services are underdeveloped, especially outside major cities such as Zagreb. There is a notable scarcity of psychiatrists and insufficient accommodation for hospitalization and day care, while implementation of the action plans outlined in the Strategic Framework for Mental Health Development until 2030 has been delayed. Research by the P.R.O.T.E.C.T. project – Testing the 5C Framework of Positive Youth Development: Traditional and Digital Mobile Assessment  - highlights alarming rates of mental health issues among Croatian high school students, including stress, depression, and in some cases the contemplation of self-harm or suicide.[25]

[1] Croatian Bureau of Statistics (2024), Prices of new dwellings sold, second half-year of

2023: https://podaci.dzs.hr/2023/en/58618

[2] Croatian Bureau of Statistics (2024), Indicators of poverty and social exclusion 2023:

https://podaci.dzs.hr/2024/en/77039

[3] Agency for Transactions and Mediation in Immovable Properties (2023), The way to subsidized

housing loans: https://apn.hr/subvencionirani-stambeni-krediti/put-do-kredita

[4] The Ombudswoman (2024), Report of the Ombudswoman for 2023:

https://www.ombudsman.hr/hr/izvjesca-puckog-pravobranitelja/#

[5] The Ombudswoman (2024), Report of the Ombudswoman for 2023:

https://www.ombudsman.hr/hr/izvjesca-puckog-pravobranitelja/#

[6] The Ombudswoman (2024), Report of the Ombudswoman for 2023:

https://www.ombudsman.hr/hr/izvjesca-puckog-pravobranitelja/#

[7] The Ombudswoman (2024), Report of the Ombudswoman for 2023:

https://www.ombudsman.hr/hr/izvjesca-puckog-pravobranitelja/#

[8] Eurostat (2023), Living conditions in Europe - poverty and social exclusion: https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Living_conditions_in_Europe_-_poverty_and_social_exclusion&oldid=584082

[9] Croatian Bureau of Statistics (2024), Indicators of poverty and social exclusion: https://podaci.dzs.hr/2024/en/77039

[10] Croatian Bureau of Statistics (2024), Indicators of poverty and social exclusion: https://podaci.dzs.hr/2024/en/77039

[11] Croatian Pension Insurance Institute (2024) Statistical information of the Croatian Pension: https://www.mirovinsko.hr/UserDocsImages/listalice/mediji/2024/3-2024-travanj-2024/index.html  

[12] Croatian Employment Service (2024) Monthly Statistics Bulletin, Year XXXVII./2024, Nr. 4: https://www.hzz.hr/app/uploads/2024/02/HZZ-bilten-04_2024.pdf

[13] The Ombudswoman (2024), Report of the Ombudsman for 2023: https://www.ombudsman.hr/hr/interaktivno-izvjesce-za-2023/

[14] CMS (2023), Press conference: The Social Welfare Act grossly violates the Constitution of the

Republic of Croatia and international treaties): https://www.cms.hr/hr/prekarni-rad-i-nezaposlenost/konferencija-za-medije-zakon-o-socijalnoj-skrbi-grubo-krsi-ustav-rh-i-medunarodne-ugovore

[15] The Ombudswoman (2024), Report of the Ombudsman for 2023:  https://www.ombudsman.hr/hr/interaktivno-izvjesce-za-2023/

[16] Croatian Bureau of Statistics (2024), Indicators of poverty and social exclusion: https://podaci.dzs.hr/2024/en/77039

[17] HMB (2024) Croatian Homeless Network: https://beskucnici.info/ . Information retrievable by scrolling the page.

[18] The Ombudswoman (2024), Report of the Ombudsman for 2023:  https://www.ombudsman.hr/hr/interaktivno-izvjesce-za-2023/

[19] The Ombudswoman (2024), Report of the Ombudsman for 2023:  https://www.ombudsman.hr/hr/interaktivno-izvjesce-za-2023/

[20] Croatian Institute for Health Insurance (2024), Report on the operations of CIHI for the year 2023: https://hzzo.hr/sites/default/files/inline-files/Izvje%C5%A1%C4%87e%20o%20poslovanju%20HZZO-a%20za%202023.%20godinu_1.pdf

[21] Official Gazette Nr. 33 (2023), Amendments to the Law on Compulsory Health Insurance: https://narodne-novine.nn.hr/clanci/sluzbeni/2023_03_33_583.html

[22] Croatian Institute for Health Insurance (2024), Report on the operations of CIHI for the year 2023: https://hzzo.hr/sites/default/files/inline-files/Izvje%C5%A1%C4%87e%20o%20poslovanju%20HZZO-a%20za%202023.%20godinu_1.pdf

[23] Digital Atlas of Croatian Medicine (2024): Doctors abroad  https://atlas.hlk.hr/atlas/

[24] The Ombudswoman (2024), Report of the Ombudwosman for 2023: https://www.ombudsman.hr/hr/izvjesca-puckog-pravobranitelja/#

[25] Varaždinska county (2024), Presented research results of the P.R.O.T.E.C.T. project: Suicidality symptoms are increasing among young people: https://www.varazdinska-zupanija.hr/vijesti/predstavljeni-rezultati-istrazivanja-projekta-p-r-o-t-e-c-t-medu-mladima-rastu-simptomi-suicidalnosti.html

Enabling space for civil society organisations 

The CIVICUS Monitor classifies Croatia's civic space as "Narrowed," a status unchanged since 2018.[1] This classification indicates that, while individuals and civil society organizations can exercise their rights to freedom of association, peaceful assembly, and expression, these rights are often violated through harassment, arrests, or assaults against critics of those in power, as well as through excessive force during protests and political pressure on the media.

Croatia faces significant challenges in creating an enabling framework for civil society. Its institutional framework has been dysfunctional for nearly a decade and continues to decline, according to the NSG. The most pressing issue is the lack of progress in adopting the new National Plan for Creating an Enabling Environment for the Development of Civil Society for 2023-2030.[2] This is a key policy document for civil society and was intended to replace the previous National Strategy for Creating an Enabling Environment for the Development of Civil Society for 2012 - 2016. The Council for Civil Society Development, the main advisory body for cooperation between government bodies and civil society, has not undertaken meaningful collaboration. Following new elections to the Council in July 2023, it has only held two sessions, according to the NSG.

Civil society organisations continued to struggle to access European Social Fund Plus (ESF+) funds due to excessive administrative demands created mainly by the Croatian institutions responsible for management of the EU funds and inadequate planning of calls for proposals and tenders. By May 2024, only 10 calls had been published. The ESF+ primarily supports organisations providing social services, and no national calls are designed for advocacy groups focusing on governance, human rights, rule of law, corruption, or transparency. National funding for human rights programmes, particularly for watchdog, research, and advocacy activities, is still lacking. Few calls address urgent social challenges, according to the NSG, and funding for short-term projects, continue to jeopardise the sustainability of the work of civil society organizations (CSOs). In November 2023, Green Forum representatives met with Croatia’s Environmental Protection and Energy Efficiency Fund and the Government Office for Cooperation with NGOs. They discussed the challenges of financing, participation in sectorial analysis, and cofinancing issues related to projects receiving financing from the LIFE programme, the EU’s funding instrument for the environment and climate action.[3]

Freedom of assembly has been limited by the effective closure of civic space in Croatia for several years. St. Mark’s Square in Zagreb, where the Government, Parliament, and Constitutional Court reside, has been almost entirely fenced off from the public since October 2020 following an attack on government security forces. This led to an amendment of the Regulation on the Determination of Protected Persons, Facilities, and Spaces and the implementation of their protection and insurance. In response, civil society organizations led by Gong – a prominent watchdog – called for the square’s reopening.[4] Gong later submitted a constitutional review proposal to the Constitutional Court in July 2023, which was rejected in January 2024.

During 2023 and 2024, civil society organizations in Croatia, particularly Gong, faced intensified scrutiny and criticism from the government of Prime Minister Andrej Plenković. Gong was accused of political bias and manipulation by both government officials and ruling party members.[5] The Prime Minister also publicly targeted other organizations, such as the Centre for Peace Studies (CPS), accusing them of obstructing Croatia's accession to the Schengen Area. In response, CPS accused the government of using these allegations to divert attention from internal governance failures and social issues such as poverty and shortcomings in the justice system.[6] These attacks, coupled with efforts to delegitimize civil society through social media campaigns, heightened concerns over the erosion of freedom of expression and the independence of civil society in Croatia.

Involvement of CSOs in civil dialogue

Access to information, a fundamental right for CSOs, poses significant challenges in Croatia. Gong has encountered delays and refusals when obtaining critical information, such as the names of special advisors to the Minister of Croatian Veteran's Affairs. It was told these delays and refusals were due to data protection concerns.[7] The Ministry of Justice's lack of transparency in disclosing information related to the Law on Constituencies led to legal repercussions.[8]  The election of Anita Markić, a public official said to be involved in drafting this law, as the new Croatian Information Commissioner raised concerns about potential conflicts of interest and impartiality due to the non-transparent manner in which this law was created and the refusal to disclose information in this regard.

Public consultations have been criticized as pro forma, and CSO inputs to decision-making processes are often disregarded by government bodies. Despite over 19,000 comments received in 2023, only a small percentage were accepted or partially accepted, indicating a persistent lack of substantive engagement with CSO recommendations. The Ombudswoman of the Republic of Croatia emphasized to provide transparent explanations for their decisions on legislative and policy proposals.

Furthermore, the practice of including Government-Organized Non-Governmental Organizations (GONGOs) in policy drafting continued, sidelining critical CSOs from meaningful involvement in decision-making. However, positive examples were noted in specific instances, such as the inclusion of CSO representatives in working groups for drafting action plans on human rights and discrimination. [9]

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

[2] European Commission (2023), 2023 Rule of Law Report - Country Chapter on the rule of

law situation in Croatia: https://commission.europa.eu/system/files/2023-07/27_1_52610_coun_chap_croatia_en.pdf

[3] Sunce (2023), After 10 years of advocacy – this is how financing of environmental CSOs is

Enganced: https://sunce-st.org/vijesti/nakon-deset-godina-zagovaranja-evo-kako-se-financiranje-okolisnih-organizacija-civilnoga-drustva-poboljsava/

[4] GONG (2024): https://gong.hr/en/

[5] Telegram (2023), Plenković dead-serious: SDP organized incidents at the border to

prevent Schengen accession: https://www.telegram.hr/politika-kriminal/plenkovic-mrtav-ozbiljan-sdp-je-organizirao-incidente-na-granici-da-bi-sprijecio-ulazak-u-schengen/

[6] Centre for Peace Studies (2023), Facebook post:   https://www.facebook.com/share/p/tNakyvz1z2dgghgU/

[7] Gong (2024), Special advisors under special treatment despite their influence, They are

not held accountable for conflict of interest: https://gong.hr/en/2024/01/29/special-advisors-under-special-treatment-despite-their-influence-they-are-not-held-accountable-for-conflict-of-interest/

[8] Gong (2024), Special advisors under special treatment despite their influence, They are

not held accountable for conflict of interest: https://gong.hr/en/2024/01/29/special-advisors-under-special-treatment-despite-their-influence-they-are-not-held-accountable-for-conflict-of-interest/

[9] Ombudsman Office (2024), Ombudsman Report for the Year 2023: https://www.ombudsman.hr/hr/download/izvjesce_pucke_pravobraniteljice_za_2023_godinu/?wpdmdl=18399&refresh=6606ba1ca73541711716892

Energy access and poverty  

In 2023, the Croatian government took several measures to address energy poverty. The Decree on Eliminating Disturbances on the Domestic Energy Market regulated the prices of electricity, thermal energy, and gas. It initially applied until March 2023 but was extended until September 2024.[1] In addition, the government increased the maximum monthly subsidy available to vulnerable energy users to €70.00 from €66.36. Some local and regional government bodies continued to assist citizens by providing one-time aid or subsidizing energy prices, although these measures varied significantly among regions.

However, challenges still remain. Energy poverty is not yet recognized in Croatian law, and efforts to relive it are currently approached through intersectoral policies spanning energy, construction, and social welfare which are though poorly coordinated, preventing a systematic approach to the problem. Despite the availability of instruments to mitigate energy poverty, many citizens remain unaware of them. The Ombudswoman has long recommended creating a guide to inform citizens of their rights and of the forms of compensation available, such as plans that help people vulnerable to energy poverty or that help to cover housing costs.[2]  Moreover, there is no unified system for preventing or relieving energy poverty throughout Croatia, leading to uneven policy implementation that depends on the economic development of individual regions. While some local governments provide one-time payments for utility bills or firewood, others offer low monthly amounts that make it difficult to buy fuel if it has to be paid for all at once. Still other regions provide no assistance at all. This disparity underscores the need for a more consistent national approach. The effects of the government's 2023 amendments to energy regulations on the overall energy market and the suppression of energy poverty remain unknown. The NSG recommends that the procedure for vulnerable energy buyers to obtain compensation, which is mandated by the Social Welfare Act, is automatically initiated. This is particularly important for elderly people without internet access, who may struggle to start such procedures independently. The Ombudswoman supported this recommendation.[3]

[1] Official Gazette Nr. 32/2024 (2024),Amendments to the Decree on elimination of disturbances on the domestic energy market: https://narodne-novine.nn.hr/clanci/sluzbeni/2024_03_32_489.html

[2] The Ombudswoman (2024), Report of the Ombudswoman for 2023: https://www.ombudsman.hr/hr/izvjesca-puckog-pravobranitelja/#

[3] The Ombudswoman (2024), Report of the Ombudswoman for 2023: https://www.ombudsman.hr/hr/izvjesca-puckog-pravobranitelja/#