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The year 2025 was marked by developments in Croatia’s asylum and migration system, particularly by intensive preparations for the implementation of the Pact on Migration and Asylum in the areas of legislation, but also in the area of institutional organisation.
Following the 12 June 2025 deadline, Croatia was among the Member States that reported delays, failing to join the 22 Member States that finalized their national migration and asylum strategies.[1]
Commission Implementing Decision (EU) 2025/2323 of 11 November 2025 pursuant to Article 11 of Regulation (EU) 2024/1351 of the European Parliament and of the Council[2] which determines the Member States under migratory pressure, at risk of migratory pressure, or facing a significant migratory situation, based on an assessment covering the period from 1 July 2024 to 30 June 2025 for migratory pressure and risk, and the period 1 July 2020 to 30 June 2025 for the cumulative effect regarding a significant migratory situation, identified Croatia, as a Member State at risk of migratory pressure and as member state facing a significant migratory situation.
In addition, with regard to the requirements of Regulation (EU) 2024/1351 on the management of asylum and migration, at the policy level, the Migration and Asylum Management Plan of the Republic of Croatia for the Period up to 2030,[3] and the accompanying Implementation Action Plan for the Period until 2027[4] were adopted in October 2025.[5]
The main objectives of the Migration and Asylum Management Plan are to: ensure an efficient and fair system of international protection and reception by increasing human resources and aligning the national legislative framework with EU standards; improve the identification of vulnerable groups; accelerate procedures for granting international protection; strengthen the integration system for persons granted international protection; ensure sustainable migration management and prevent irregular movements through effective external border monitoring and cooperation with neighbouring third countries to prevent illegal migration; strengthen the return system for persons who do not have the right to reside in the Republic of Croatia; and promote legal and safe migration pathways and proactively involve Croatia in European Union solidarity mechanisms.
The Migration and Asylum Management Plan is implemented through an Action Plan. This first Action Plan covers the period until 2027 and includes priority measures, while the remaining activities will be addressed in the next Action Plan (2028–2030). The Action Plan contains a total of 36 measures, of which 26 are planned to be implemented under the 2027 Action Plan, and 10 in the subsequent Action Plan.
The MoI is the main body responsible for implementing most activities under the Action Plan, while other responsible institutions include: the Ministry of Justice, Administration and Digital Transformation; the Ministry of Labour, Pension System, Family and Social Policy; the Ministry of Health; the Ministry of Spatial Planning, Construction and State Property; and the Croatian Employment Service.
In accordance with the Migration and Asylum Management Plan of the Republic of Croatia for the period up to 2030, amendments to the existing Protocol on the treatment of Unaccompanied Children, that was was adopted in August 2018, are planned to ensure compliance with national and EU legislation. Furthermore, pursuant to the Action Plan for the Implementation of the Migration and Asylum Management Plan of the Republic of Croatia for the period up to 2027, these amendments are scheduled to be finalized by 2027.
At the end of 2025, the MoI launched public consultations a with the aim to amend the existing LITP and Law on Foreigners and further align those legislations with the new EU legal framework, especially Pact on Migration and Asylum.
In November 2025, a training of Administrative court judges, in cooperation with the Judicial Academy and financially supported by UNHCR, was held.[6] The topic of the training was “The New Pact on Migration and Asylum and Topicalities in Judicial Practice”.The seminar presented the key novelties introduced by the Pact on Migration and Asylum, with particular emphasis on its implementation in Croatia and the role of administrative courts in proceedings concerning third-country nationals and applicants for international protection. Lectures were delivered by experts from the MoI. In the second part of the programme, representative of the Constitutional Court of the Republic of Croatia presented recent case law of the Constitutional Court, the ECtHR, and the CJEU.
In her 2025 annual report, the Ombudswoman stated that under the National Implementation Plan for the Pact on Migration and Asylum in the Republic of Croatia, the expansion of accommodation capacities is not scheduled to take place until the first quarter of 2029.[7]
[1] Annex to the Communication from the Commission to the European Parliament and the Council on the European Annual Asylum and Migration Report (2025), available at: https://eur-lex.europa.eu/resource.html?uri=cellar:f449c5d6-bf11-11f0-a612-01aa75ed71a1.0001.01/DOC_2&format=DOC
[2] Commission Implementing Decision (EU) 2025/2323 of 11 November 2025 pursuant to Article 11 of Regulation (EU) 2024/1351 of the European Parliament and of the Council, available at: https://eur-lex.europa.eu/eli/dec_impl/2025/2323/oj/eng.
[3] Migration and Asylum Management Plan of the Republic of Croatia for the Period up to 2030, available at: https://vlada.gov.hr/UserDocsImages//2016/Sjednice/2025/Listopad/123_sjednica_VRH//123%20-%204%20Plan_upravljanja.docx.
[4] Action Plan for the Implementation of the Migration and Asylum Management Plan of the Republic of Croatia for the Period until 2027, available at: https://vlada.gov.hr/UserDocsImages//2016/Sjednice/2025/Listopad/123_sjednica_VRH//123%20-%204%20Akcijski_plan.docx.
[5] Decision on the Adoption of the Migration and Asylum Management Plan of the Republic of Croatia for the Period up to 2030 and the Implementation Action Plan for the Period until 2027, Official Gazette 132/2025, available at: https://narodne-novine.nn.hr/clanci/sluzbeni/2025_10_132_1932.html.
[6] The seminar was held with the financial support of UNHCR within the project “Access to the Territory of the Republic of Croatia – Legal Assistance and Capacity Building” implemented by Croatian Law Centre.
[7] Ombudswoman: Annual Report for 2025, available at: https://www.ombudsman.hr/hr/download/izvjesce-pucke-pravobraniteljice-za-2025-godinu/?wpdmdl=23118&refresh=69cd1d3691f351775050038.