Direct Request (CEACR) - adopted 2025, published 114th ILC session (2026)

Forced Labour Convention, 1930 (No. 29) - Croatia (Ratification: 1991)

Articles 1(1), 2(1) and 25 of the Convention. Trafficking in persons. 1. National plan. The Committee takes due note of the detailed information provided by the Government, in its report, on the measures taken to implement the National Plan for Combatting Trafficking in Human Beings for the period 2018–21. The Government indicates that the analysis of the implementation of the measures taken and the activities carried out shows that goals were met, particularly with regard to the proactive approach to identifying victims, the assistance provided to victims and the monitoring of new trends. The Government adds that activities to combat trafficking are conducted regularly under the coordination of the National Committee for Combatting trafficking in Human Beings and through regular meetings of its Operative Team. The Committee notes that the experiences of the relevant authorities provided the foundation for the drafting and adoption of a new National Plan for the period up to 2030, encompassing two specific objectives: (i) preventing trafficking in human beings, and (ii) strengthening the system for identifying, assisting and protecting victims. A mid-term evaluation of the National Plan is scheduled for the end of 2026. The accompanying Action Plan (2024–2026) provides for measures to: strengthen the legislative framework to ensure assistance and protection for victims; enhance proactive victim identification; empower mobile teams; improve monitoring of the investigation, prosecution and sanctioning of trafficking and related offences; and reinforce victim assistance and protection services. The Committee encourages the Government to pursue its efforts to ensure the full implementation of the National Plan for Combatting Trafficking in Human Beings for the period up to 2030 and its relevant Action Plans and requests the Government to report on the mid-term evaluation, indicating the results achieved and the difficulties encountered as well as the measures envisaged as a consequence.

2. Identification and protection of victims. The Committee notes that the Protocol for the Identification, Assistance and Protection of Victims of Human Trafficking defines the institutions responsible for identifying victims and providing them with assistance and protection, pending their inclusion in the assistance and protection programme. Under the Protocol, victims are granted a reflection period of 60 days during which they can decide whether to participate in this programme. The Programme includes medical and psycho-social protection, safe accommodation, translation and interpretation services and legal aid. The Committee notes that from 2018 to 2021, 90 per cent of identified victims were Croatian nationals exploited within the country. It also notes that 22 special advisers (coordinators for victims of trafficking) have been appointed in all local offices of the competent service to provide individualized support. The Committee further notes that the Croatian Employment Service (CES) also implements measures to facilitate the labour market reintegration of trafficking victims, including training, employment preparation and monitoring activities. Victims of trafficking are also entitled to compensation under the Social Welfare Act, including guaranteed minimum and one-time compensation.

The Committee notes the amendments made to the Criminal Procedure Act (Official Gazette No. 80/22), which have been introduced to strengthen the rights and protections afforded to victims during the criminal procedure relating inter alia to: application of precautionary measures, grant victims the right to testify via audio-video equipment and to have personal information kept confidential where disclosure could endanger their safety; automatic notification of the release of detainees or prisoners; anonymization of victims’ personal data in court publications to safeguard privacy and dignity. In cases where victims return to their country of origin, the Protocol on the Voluntary and Safe Return of Victims of Human Trafficking applies, and a risk and safety assessment must be conducted prior to departure. In cooperation with the International Organization for Migration (IOM), one male victim from the United States was returned in June 2021, and one male victim from Germany in August 2022, in accordance with this Protocol.

Furthermore, the Committee notes the Government’s indication that the Action Plan for 2024–2026 refers to legislative changes concerning the non-punishment of victims and the regulation of their compensation, and that a review of the conditions and criteria for obtaining monetary compensation for crime victims will be conducted based on the Crime Victims Compensation Act (No. 80/08, 27/11), specifically addressing the issue of compensation for victims of trafficking in person. The Committee takes due note of this information and requests the Government to continue to provide information on the measures taken to ensure the proper identification of victims of trafficking in persons, for both sexual and labour exploitation, and provide them with protection and support for their recovery, reintegration and compensation, as well as assistance for safe return. The Committee also requests the Government to indicate the progress achieved in relation to the amendment of the criminal legislation regarding the non-punishment of victims of forced labour for unlawful acts committed as a direct consequence of being under constraint and the compensation.

3. Prosecution and application of penal sanctions. The Committee notes the Government’s indication that the Action Plan 2024–2026 aims to enhance the knowledge of public officials on the issue of trafficking in persons, particularly through continuous training of police officers at the Police Academy. It also notes that the Ministry of the Interior operates the “Red Button” application, which enables anonymous reporting of abuse by victims or third parties. Upon receipt, authorities will identify and assist victims, assess potential offences, and act against perpetrators. Reports may also be submitted through the emergency line (192), email, police stations, or the e-reporting system.

According to the Government’s statistical information, in 2022, 12 investigations led to the identification of 29 victims of trafficking (19 of sexual exploitation and 3 of labour exploitation). In 2023, 21 victims were identified and investigations were initiated against three persons in two cases. Between 2019 and 2023, 68 criminal investigations were conducted, resulting in the identification of 108 victims. From 2019 to July 2024, 29 criminal cases were filed against 58 defendants, while 27 cases against 57 defendants were concluded, resulting in 10 convictions under section 106 of the Criminal Code, with sentences ranging from one to four years’ imprisonment. Between January and July 2024, there were two recorded cases: one of forced labour and one of sexual trafficking.

Furthermore, the Committee notes the Government’s information that in order to strengthen the capacities of the State Inspectorate for better identification of cases of labour exploitation, labour inspectors have been informed through work guidelines on what circumstances they need to investigate when conducting inspections, particularly regarding third-country nationals. The Government also informs that it approved a recruitment plan to address the decreasing number of labour inspectors, primarily due to retirements and transfers to other positions. However, a significant number of positions remained unfilled. The Committee encourages the Government to continue to take measures to strengthen law enforcement bodies’ capacity to identify and investigate trafficking in persons cases, with a special emphasis on labour inspectors who play a key role in detecting situations of labour exploitation that could constitute trafficking in persons. It also requests the Government to continue providing information on the number of investigations, prosecutions, convictions and penalties imposed under section 106 of the Criminal Code, indicating the number of cases concerning trafficking for labour exploitation and those relating to trafficking for sexual exploitation.