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Governance of migrant integration in Croatia

[Last update published: June 2024]

While Croatia has been historically known as a country of emigration, it is slowly becoming a destination for some. In 2022, for the first time since 2008, Croatia saw a positive migration rate, mostly as a consequence of the liberalisation of the labour market and the easier approval of work permits for third-country nationals (TCNs). However, there is a need for more policies that would facilitate the integration of migrant workers and their families into Croatian society.

Statistics

The statistics in the chart above are based on Eurostat's Non-national population by group of citizenship, 1 January 2023. The next Eurostat update is expected in March 2025.

According to Eurostat's Migration and migrant population statistics, as of 1 January 2023, there were about 54 700 third-country nationals (TCNs), representing 1.4% of the population, and another 14 900 EU citizens (0.4%) living in Croatia at the time.

In 2021, according to EUROSTAT data, Croatia approved a total of 33 580 first residence permits, of which almost 89% were granted for work while only 8,47% for family reunification and 0,72% for study. ‘Other purposes’ including right to international protection has a 1.28-percent share. 

In 2022, 17.8% of those coming to the country represented Croatian citizens and 82.2% - foreigners. However, there has been a shift in the patterns of migration to Croatia. While according to the Croatian Bureau of Statistics most migrants in 2019 came either from the former Yugoslavian states Bosnia and Herzegovina, Serbia and Kosovo, or from EU countries such as Germany, Slovenia and Italy, in 2023, according to Ministry of the Interior (MUP) data, the largest number of residence and work permits were issued to citizens of Bosnia and Herzegovina, Serbia, Nepal, North Macedonia, India, Kosovo, Philippines, and Bangladesh. This points to the expanding number of countries of origins of migrants coming to Croatia. The largest number of residence and work permits until 31 July 2023 were issued for employment (69 809), for extension of work permits (21 722), and for seasonal workers (16 585), of which the majority were in the tourism and hospitality industry (15 123). Croatia introduced in 2022 an online application for seasonal workers to ease the submission of applications for residence and work permits. 

In terms of international protection, there has been a notable increase in the number of asylum seekers between 2020, which saw 1 932 applications, and 2022, when 12 872 persons applied for protection. The most common countries of origin, according to national data, include Iraq, the Russian Federation, Burundi, Turkey, Afghanistan and Cuba. A few Syrian beneficiaries of international protection families (a total of 250 people) were also resettled in Croatia from Turkey from 2017 to 2019, and are still residing in Croatia.

Further detailed statistical data is available in the EMN 2022 country factsheet for Croatia, with insights about the age and gender of TCNs, the most common types of residence permits issued and international protection statistics. 

In addition, by the end of March 2024, Croatia saw a total of 23 600 of non-EU citizens who had fled the war against Ukraine and were under the temporary protection – see monthly updates in the numbers of temporary protection beneficiaries on Eurostat.

Finally, there are no statistics available on the overall number of TCNs that have acquired Croatian citizenship, but data from the 2021 census suggest that more than 13% of the population at that time was foreign-born, referring mostly to ethnic Croats from Bosnia and Herzegovina, a group that has been able to easily obtain citizenship since the 1990s. 

However, the OECD/EC Indicators of Immigrant Integration 2023: Settling In report provides further breakdowns of the composition of migrant populations and households in Croatia, including in terms of foreign-born population, immigration flows by legal category, concentration in densely populated areas, duration of stay and household composition.

Integration strategy

To foster the inclusion of migrants, the Croatian government first set up the Action plan for the removal of obstacles to the exercise of particular rights in the area of integration of foreigners for the period 2013-2015. The document focused on social welfare and health protection, accommodation and housing, as well as on language learning and education.

A follow-up action plan for the period of 2017-2019, limited to people granted international or subsidiary protection, was approved in early December 2017. It included provisions on the right to work, and access to decent accommodation and education. It also focused on the beneficiaries of international protections' obligations to participate in the economic, social and cultural development of the country.

The action plan for the 2021-2023 period targeting the integration of persons granted international protection was expected to also include steps for the better coordination between local authorities welcoming beneficiaries of international protections via resettlement quotas. This was also meant to facilitate a more proactive role of migrant associations. Although it has already been drafted and discussed with experts, as of now the plan has still not been officially published.

On 5 February 2021 the Croatian Parliament adopted a National Development Strategy - an overarching strategic document for national development that provides a framework for the preparation of all local, regional and national strategies until 2030. In the area of social policy, the strategy envisages for the advancements of the accessibility and quality of social care for vulnerable groups, including victims of trafficking and international protection beneficiaries. 

Integration programme

Croatia has no official integration programme. However, in 2014, the government designed a Learning programme on Croatian language, history and culture for refugees and beneficiaries of subsidiary protection which, while initially meant to be mandatory, has since been implemented on a case-by-case basis.

The Government also published an integration guide in 2015, inviting migrants to become active in their host country. The document contains basic information on their key rights and duties, the main integration steps, and available services. An updated edition of the guide has been published in 2019 and is available in different languages.

The Croatian Ministry of Labour and Pension System has also created an informative website providing comprehensive information on rights in the areas covered by the social security system.

Since 2018, there has been a shift to understand and implement integration as a process happening on level of local communities, rather than only on the national level or in the capital of Zagreb. This has largely been the result of the resettlement and accommodation of beneficiaries of international protections in smaller towns across Croatia.

At the local level, the City of Zagreb adopted an Action plan for integrating applicants for international protection and persons granted international protection for 2022 as a part of Eurocities’ CONNECTION project, as well as the City of Zagreb Action plan for implementation of the Charter of Integrating Cities for 2023 and 2024. The City of Osijek has also developed its Plan of local integration of TCNs through the project INTEGRA.

In December 2022, the Standing Committee for the Implementation of the Integration of Foreigners into Croatian Society adopted the Protocol of Procedures for the Integration of Beneficiaries of International Protection.

Evaluation

Activities carried out within the framework of the integration action plans have been reviewed through activity report 2014,  activity report 2017-2018, and activity report 2019. However, no official evaluation of the integration of TCNs has been published in Croatia.

The international Migrant Integration Policy Index (MIPEX) points out that, just like in most Central and Eastern European countries, immigrants in Croatia enjoy basic rights and security, but not equal opportunities. The country's approach to integration is therefore classified as providing ‘equality on paper’, with Croatia scoring 39 out of 100 points on the MIPEX 2020 scale, with the average score being 49. 

Legislation

Law on foreigners

Law 30/2011 of 4 November 2011 regulates procedures related to the visas and travel documents of foreigners. It also introduces measures to restrict foreigners’ freedom of movement in Croatia. Amendment 69/2017 of 5 July 2017 added new categories of vulnerable people and their family members, and defined the responsibilities of the foreign ministry in the process of issuing ID cards to foreigners. Amendment of 27 November 2020 in turn introduced, among other, the abandonment of annual quotas for employment of foreign labour introduced temporary residence visas for ‘digital nomads’, or remote workers.

At the beginning of 2021 the Aliens Act was introduced. Some important new provisions of the law mean that it will not be necessary test for seasonal immigrant workers in agriculture, forestry, catering and tourism to conduct a labour market for up to 90 days during a calendar year. Conditions for family reunification are relaxed for some particular categories of TCNs. The duration period is shortened from 2 years to 1 year upon their residence and work in Croatia. 

Croatia becomes a fully-fledged Schengen state following Council Decision (EU) 2022/2451. The provisions of the Schengen acquis became fully applicable in Croatia on 1 January 2023. Amendments to the national legislation, and in particular to the Act on the State Border Surveillance and the Aliens Act, enabled the harmonisation of the national normative framework with the Schengen Agreement, the Schengen Convention, and the related Schengen acquis. The most tangible evidence of the development is the removal of internal Schengen border controls in Croatia (controls at internal Schengen air borders was lifted as of 26 March 2023).

Asylum law

In June 2015, the Croatian parliament approved the new Law on international and temporary protection (LITP) which repealed the previous legislation. Prior to 2 July 2015, all protection applications were regulated by the Law on asylum 103/2003 and the subsequent 2007 asylum law amendment and 2013 asylum law amendment which laid down the principles, conditions and procedures for granting asylum and temporary protection, and defined the status, rights and obligations of both asylum seekers and beneficiaries of international protections.

The 2015 law however transposed several EU directives into the domestic law, and thanks to a 2017 asylum law amendment amendment beneficiaries of international protection are now entitled to accommodation even if they do not possess the financial means to support themselves.

The Act on Amendments to the Act on International and Temporary Protection was passed by the Croatian Parliament on 17 March 2023 and entered into force on 1 April 2023. It strengthened the role of the special guardian in the care of unaccompanied minors. The legal framework now also includes a stipulation that during the international protection procedure, children are provided with access to recreational activities in accordance with their age including play and outdoor activities. Furthermore, the changes make it possible for applicants for international protection to enter the labour market after a period of 3 months from the date of submission of the application. On the condition that they have no financial resources, applicants may also benefit from a housing unit owned by the Republic of Croatia for a maximum of two years. 

In addition, international or temporary protection seekers have the following rights:

  • residence
  • freedom of movement in the Republic of Croatia
  • adequate material conditions of admission
  • healthcare
  • primary and secondary education
  • information, legal counselling and free legal aid
  • freedom of religion
  • work – after 9 months from the date of application for protection has passed and the interior ministry has not made the decision on the application 

Integration law

There is no standalone integration law in Croatia.

Citizenship law

The Croatian Citizenship Act of 1991 was amended in 2015 and 2019 (see Citizenship Act Amendment of October 2015 and Citizenship Act Amendment of October 2019, with the latest amendment stating that the right to Croatian citizenship through descent has been extended and could be claimed by persons past the age of 21.

The Law on Amendments to the Law on Croatian Citizenship was adopted in December 2021, and entered into force on 1 January 2022. The new amendments provide an easier acquisition of Croatian citizenship for migrants of Croat origin from the former Yugoslav republics (Bosnia and Herzegovina, Slovenia, Serbia, North Macedonia, Kosovo and Montenegro).

Anti-discrimination law

Law 85/08 (on anti-discrimination) promotes equality as the highest value of the constitutional order of Croatia. The law provides for protection from discrimination on multiple grounds, including race, ethnicity, language and religion. The law's 2012 anti-discrimination law amendment regulates that ‘encouraging discrimination shall be considered discrimination in the sense of the provisions of this act’.

In addition, a national strategy to fight discrimination was introduced for the 2017-2022 period. The first three years will be implemented through an action plan fighting discrimination. Furthermore, a National Plan for the Protection and Promotion of Human Rights and Fighting Discrimination for the Period 2021-2027 aims to bring a higher level of social inclusion and solidarity, quality of life and the rule of law. So does the latest 2023 National Action Plan for Fighting Discrimination.

Public authorities

The government's Office for Human Rights and the Rights of National Minorities is in charge of migrant integration governance in Croatia. The office also nominates Croatia’s representative at the European Integration Network (EIN).

The office designed the first 2013-2015 integration action plan, the operational implementation of which was mainly the responsibility of a standing committee. This action plan was otherwise implemented through activities led by the interior and other ministries and public institutions, as well as humanitarian and civil society organisations. At the local level, municipalities provide support and assistance in terms of employment, healthcare, housing and education services.

Alongside with the Standing Committee for the Implementation of the Integration of Foreigners into Croatian Society, in June 2021 the Office for Human Rights and Rights of National Minorities of the Government of Croatia founded the Advisory Group of Third-Country Nationals and Persons of Migrant Origin. This comes as an effort to contribute to the creation of better asylum, reception, and integration policies.

In addition, the Intersectoral Committee for Protection of Unaccompanied Children was established in January 2022. Supporting the implementation of the EU Action Plan on Integration and Inclusion 2021-2027, this committee aims to foster intersectoral cooperation of competent stakeholders included in protection of unaccompanied and separated children in Croatia.

Civil society

Croatia does not have a civil consultative body on integration. Civil society organisations and other stakeholders were, however, consulted during the process of designing the 2017-2019 action plan for the integration of beneficiaries of international protection.

Non-governmental organisations, together with primary schools, open universities, local administration offices, local and regional self-government units, the Education and Training Agency, the Institute for Health Insurance and the Employment Service also provide a variety of integration services.

A report by Ajduković et al (2019) revealed the pivotal role these actors play in creating a welcoming culture and providing early integration measures for newcomers. Additionally, a report by Giljević, et al (2020) describes the integration framework and provision of social services to beneficiaries of international protections at local levels.

In May 2022, the first immigrant-led association was established in Zagreb by immigrant workers of Nepali origin.

Funding

Non-profit organisations and local authorities can apply for financing through several EU funds. In addition, national funds are made available for service providers and other stakeholders to carry out projects aiming for a better integration of the migrant population. 

EU funds

Asylum, Migration and Integration Fund (AMIF) in Croatia

European Social Fund Plus (ESF+) in Croatia

Other EU funds for integration available in Croatia

ERASMUS+, the EU’s programme to support education, training, youth and sport in Europe

National managing authority: Agency for Mobility and EU Programmes

European Regional Development Fund (ERDF) to strengthen economic and social cohesion in the EU by correcting regional imbalances

National managing authority: Ministry of Regional Development and EU Funds

Fund for European Aid to the Most Deprived (FEAD), offering material assistance to the most vulnerable or in need

National managing authority:  Ministry of Labour, Pension System, Family and Social Policy

European Agricultural Fund for Rural Development (EAFRD), supporting the development of rural economies and communities

National managing authority: Ministry of Agriculture, Directorate for Management of EU Funds for Rural Development, EU and International Cooperation

European Maritime and Fisheries Fund (EMFF)

National managing authority: Ministry of Agriculture; the EMFF supports coastal communities in diversifying their economies and finances projects that create jobs and improve quality of life along European coasts

Other Funds

Other public funding in Croatia

Private funding in Croatia

Other stakeholders and useful resources

Providing integration services

Implementing the integration programme

  • Institute for Health Insurance
  • The Croatian Employment Service

Campaigning

Publishing research and statistics

Croatia Case studies Statistics

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