Author
Although in 2024 a further decrease in the number of complaints on pushbacks to the Ombudsperson was recorded, pushback practices persisted throughout 2024, as reported by civil society organisations.
Illegal border practices, pushbacks and ill-treatment
According to the Ministry of Interior, there were 29,294 irregular border crossings in 2024, thus marking a decrease of 58% compared to 2023, when 69,726 irregular border crossing cases were recorded. The main countries of origin of persons apprehended while irregularly crossing the border were Syria (8,947), Türkiye (8,559), Afghanistan (2,717), Iraq (901) and China (891). Out of this number, 28,128 persons crossed the border irregularly, 879 avoided border control, 216 misused travel documents and 71 were accepted by the police of another State.[1]
At the beginning of 2025, the Minister of the Interior stated that, according to estimates, in 2024 the police prevented more than 71,000 individual illegal entries into the territory of Croatia.
The Ombudswoman reported that, according to data from the Ministry of the Interior, out of 29,294 irregular migrants that were registered in Croatia in 2024, 5,950 persons received a return decision with a deadline for voluntary return, and 2,457 of these persons left the country. This means that 41.3% of the people who received decisions for voluntary return left the country, which is more than in previous years (19.6% in 2023; 1.92% in 2022; and 5.63% in 2021). Decisions on expulsion ordering forced removal were received by 6,015 persons.[2]
In the report for 2024, the Ombudsman for Children stated that according to data from the Ministry of the Interior for 2024, the number of children caught crossing the state border irregularly was 6,936, of which 1,340 were unaccompanied children. Of the total number of children, 2,819 were under the age of 10.[3]
In June 2023, the Memorandum of Understanding between Croatia and Frontex was signed and aimed at establishing a collaboration in the return’s procedures of third country nationals.[4]
In 2024, two decisions were adopted amending the Decision on the Direct Allocation of Financial Resources for the implementation of the project “Strengthening National and FRONTEX Capacities for the Surveillance of the European Union’s External Border”. Pursuant to the Second Annex to the Agreement, the total value of the project was increased to 28,929,111.10 EUR including VAT, of which 90% is co-financed through the Integrated Border Management Fund, under the Instrument for Financial Support for Border Management and Visa Policy. According to information published on the Ministry of the Interior’s website, the Fund’s resources will enable the strengthening of the EU’s external border security through the procurement of drone detection systems, vessels, off-road vehicles, and drones.
The implementation of activities within this project will support the operations of the Croatian Border Police in carrying out tasks related to the surveillance of the national and EU external borders, enhance their capacity to respond to incidents in a timely manner and in all types of terrain and, through the procurement of the mentioned equipment, contribute to the operational aspects of FRONTEX’s external border management—such as joint operations, rapid border interventions, effective support to other Member States on the ground, combating cross-border crime, and preventing irregural migration.[5]
In addition, in 2024, the Directorate for European Affairs, International Relations and EU Funds of the Ministry of the Interior directly allocated funds to the Border Police Directorate of the Ministry of the Interior for the implementation of the project “TRANSFER – Providing Support to Applicants for International Protection by Ensuring Appropriate Transport”. The purpose of the project is to provide transportation services using appropriate vehicles for applicants for international protection to an open-type reception facility, or to a location where their reception and accommodation will be ensured, or where they can submit an application for international protection, as well as to locations where screening will be conducted in accordance with the Pact on Migration and Asylum. 75% of the total eligible project costs are funded through AMIF, while Croatia will provide co-financing for 25% of the eligible project costs.[6]
Croatian Red Cross reported that throughout 2024, humanitarian assistance was provided to migrants apprehended at the national border, temporarily held in police stations, or found in irregular movement and residence within Croatia. Humanitarian aid packages typically included food, water, hygiene items, footwear, underwear, and clothing. This assistance was delivered through local branches of the Croatian Red Cross across the country, with a particular focus on branches located near the borders with Bosnia and Herzegovina and Serbia.[7]
In January 2025, ministers of interior affairs of Croatia, Slovenia, and Italy signed a memorandum on trilateral border patrols. By this operational Memorandum of Understanding all three parties will agree on the modalities of joint trilateral patrols on the external border of Croatia.[8]
Pushback practices reported by national and European NGOs and other actors
Pushback practices persisted throughout 2024, as reported by organisations such as the No Name Kitchen, Save the Children, Danish Refugee Council (DRC), the Border Violence Monitoring Network (BVMN),[9] and the Centre for Peace Studies (CPS).
The Ombudswoman reported that in 2024, a further decrease in the number of complaints on pushbacks to the Ombudsperson was recorded. However, the Ombudswoman also observed that Civil Society Organisations (CSO) continued to report on the collected testimonies of persons being pushed back.[10]
The Ombudswoman for children also reported that in 2024 civil society organizations continued to warn about collective expulsions on the Croatian-Bosnian border. According to data provided by Save the Children, children and adults reported violence and other humiliating actions by the Croatian police at the border, which included pushing, hitting with hands and batons, stripping, misappropriation of property and destruction of personal belongings (such as mobile phones). They reported on 1,916 identified potential refugees and migrants who were forcibly returned from Croatia, among whom were 244 children, of which 239 were unaccompanied.[11]
The No Name Kitchen (NNK) accused the Croatian border police of burning the personal belongings of people who tried to enter the country irregularly from Bosnia and Herzegovina. The report is based on NNK field research conducted between October 2023 and August 2024. The report states the existence of secret locations where the Croatian border police systematically destroy migrants’ personal belongings by burning them.[12] This report was also published by The Guardian.[13] The Ministry of the Interior has denied these allegations.[14]
The report Pushed, Beaten, Left to Die – European Pushback Report 2024,[15] published in collaboration with NGOs from Belgium, Bulgaria, Croatia, Hungary, Latvia, Lebanon, Lithuania and Poland, analyses data on pushbacks from EU Member States to third countries in 2024. It also presents data gathered on pushbacks from Croatia according to which, in 2024, the NGO Save the Children outreach teams identified 1,905 refugees and migrants who were pushed back from Croatia, including 333 children, out of whom 228 were unaccompanied. In addition, in 2024, the Danish Refugee Council recorded 384 cases of pushbacks in January and February before ending their activities in the Una-Sana Canton in Bosnia and Herzegovina. The report highlights that there could be an overlap in the monitoring of Save the Children and Danish Refugee Council. According to the report, throughout 2024, children and adults experiencing pushbacks continued reporting violence and other humiliating and unlawful practices by the Croatian border guards, including pushing, beating by hand and batons, stripping, appropriation of property and destruction of personal belongings such as phones. Some refugees and migrants reported being pushed back from deep into the Croatian territory (Zagreb) and testified about being threatened or robbed by criminal groups operating within the Croatian territory.
The Centre for Peace Studies (CPS) reported a continuation of pushbacks. CPS also reported that problems with readmission procedures have been observed, causing concern that readmission procedures are being applied contrary to legislation (i.e. misused to return persons asking for asylum, vulnerable groups, and unaccompanied minors). In addition, over the past two years, the CPS has closely monitored pushbacks, mainly along the Croatian border. Previous reports and findings suggested that such pushbacks occurred exclusively in border areas. However, it is now observed that pushbacks are also being carried out from locations up to a 30-minute drive from the border, indicating that pushbacks are increasingly taking place from deeper within Croatian territory. Organizations working in Bosnia and Herzegovina reported to the CPS a sharp increase in the frequency of pushbacks and levels of police violence during the summer, with the peak in July. Reported cases included verbal abuse, forced removal of clothing – including hijabs for women – seizure of personal belongings, and physical violence. CPS also reported that Save the Children (STC) field teams operating in the border areas were the only ones providing support to refugees and migrants, including those who were pushed back from Croatia. The teams monitor the protection situation along the border, identify unaccompanied children and other children in vulnerable situations, provide child-friendly information and referrals to services, monitor transfers, and carry out case management in cooperation with social welfare centers in Bihać and Velika Kladuša. Throughout 2024, STC field teams identified 1,905 refugees and migrants who had been pushed back from Croatia, including 333 children, of whom 228 were unaccompanied. According to information provided to CPS by STC, children and adults who experienced pushbacks reported violence and other degrading and unlawful practices, including being pushed, beaten with hands and batons, stripped, having their property confiscated, and personal belongings such as mobile phones destroyed. Some migrants and refugees reported pushbacks from deeper inside Croatian territory (including Zagreb) and testified about threats or robberies carried out by criminal groups within Croatian territory. Reports of pushbacks included children who were hungry, thirsty, exhausted, frightened, and seriously affected by harsh weather conditions, with some requiring medical assistance. In one pushback case, the STC field team identified an 11-year-old Syrian girl with hearing and speech impairments who was traveling in a group of adult men.[16]
The Border Violence Monitoring Network (BVMN) also reported about pushbacks and other types of violence along the Bosnian-Croatian border.[17]
During the year 2024, reports of injured and dead migrants were also made. In one case, the incident occurred when a vehicle carrying nine individuals veered off the road and collided with a wall during a police pursuit and 4 migrants died.[18]
Push-back practices reported by the media
The humanitarian organization No Name Kitchen (NNK) shared its report with The Guardian. According to the report, Croatian police allegedly confiscated and destroyed migrants’ clothes, mobile phones, and passports before returning them to Bosnia and Herzegovina.[19] The Ministry of the Interior denied the allegations, stating that the Croatian police acts in accordance with the Schengen Borders Code and that individuals expressing their intention to seek international protection are granted access to the asylum system. The Ministry also referred to previous similar allegations that were reportedly proven unfounded.[20]
Reactions from UN bodies and European human rights bodies
In August 2020, the Council of Europe’s Committee for the Prevention of Torture (CPT) conducted a rapid reaction visit to Croatia to assess the treatment of migrants that attempted to enter Croatia and were apprehended by the police. The delegation visited locations in both Croatia and Bosnia and Herzegovina, interviewing and medically examining individuals who alleged they endured forced returns from within Croatian territory. The CPT noted limited cooperation from Croatian authorities, including an incomplete list of facilities where foreign nationals may be deprived of their liberty and a lack of awareness among police officers regarding the CPT’s mandate and rights to access all documentation containing information relevant to its mandate (See AIDA Country Report on Croatia – 2021 Update).
In October 2023, UN Committee on the Elimination of Racial Discrimination (CERD) published its Concluding observations on the combined ninth to fourteenth periodic reports of Croatia. CERD states that the Committee is concerned about reports of cases of expulsions and pushbacks of migrants, and of excessive use of force by law enforcement officials resulting in injuries and bodily harm and accordingly recommends to Croatia to refrain from conducting collective expulsions and pushbacks, provide access to its territory for persons in need of international protection, respect the principle of non-refoulement and conduct investigations into cases of collective expulsions, pushbacks and excessive use of force and violence by law enforcement officials against migrants, refugees and asylum-seekers.[21]
In September 2023, the Council of Europe Expert Group on Action against Violence against Women and Domestic Violence (GREVIO) published its baseline evaluation report on Croatia.[22] GREVIO carried out an evaluation visit to Croatia from 17 to 21 October 2022. GREVIO’s report contains a comprehensive analysis of the implementation of the provisions of the Istanbul Convention in Croatia. It acknowledges the steps taken by Croatia to comply with the Istanbul convention and identifies areas where progress is still needed. In its report on Croatia, GREVIO made some observations and recommendations which are related to migrant and asylum-seeking women. Amongst other, GREVIO stated that it was alerted about the denial of access to the territory and asylum as well as of violence and misconduct by border police at the borders with Serbia and Bosnia and Herzegovina of sufficient severity to amount to inhuman and degrading treatment contrary to Article 3 of the European Convention on Human Rights. Those reports included incidents involving women, pregnant women, female-headed households, families with children and unaccompanied and separated children. GREVIO urges the Croatian authorities to urgently identify and take action in all cases of border police violence against women to provide justice for past abuse and ensure such abuse is not permitted to take place with impunity in the future.
In addition, GREVIO strongly encourages the Croatian authorities to take measures to ensure that improvements are made in the identification, processing and protection of migrant and asylum-seeking women who are or may become victims of gender-based violence. This includes, amongst other, ensuring that all women arriving at the border are allowed to have their claim for international protection recognised and recorded; collecting quantitative and qualitative data on the number of women arriving at the border; providing standard operating procedures and gender-sensitive guidance on identifying, interviewing, processing and determining claims of gender-based violence to all officials likely to encounter migrant women. The existing standard operating procedures relating to prevention and protection in accommodation centers may serve as a good model: ensuring that adequate information is provided to women seeking asylum at the borders, in landing settings, hotspots and reception facilities to increase their awareness of their vulnerabilities and rights, their right to redress in case of mistreatment by border guards or others and facilitating their access to general and specialist support services; and monitoring and evaluating the impact of the training provided to border and migration officials.
On 18 July 2024, the Human Rights Committee adopted the Concluding observations on the fourth periodic report of Croatia. In its observations the Committee noted that it was concerned by reports of the denial of access to the territory and to asylum procedures for persons entering irregularly from Bosnia and Herzegovina and Serbia and their forced return without any individual screening of their claims or needs. The Committee also highlighted that it was concerned by reports of the excessive use of force, inhuman and degrading treatment, extortion and theft of property by Croatian border control personnel, notably in the context of the pushbacks of migrants and asylum-seekers into the territory of Serbia and Bosnia and Herzegovina, and the very limited efforts to hold those responsible to account. The Committee stressed that Croatia should ensure effective access to a fair and efficient asylum procedures for all persons in need of international protection and should also ensure that all relevant officials, including border control personnel, receive adequate training on international standards, including on the principle of non-refoulement and the human rights of migrants, including those of children, and that all allegations of pushbacks and ill-treatment at borders are promptly, thoroughly and independently investigated and the perpetrators, if found guilty, are punished with sanctions commensurate with the seriousness of the offence.[23]
Litigation on pushback practices and relevant complaints
In the case M.H. and others v. Croatia, concerning an Afghan family of 14, the ECtHR found that Croatia had violated several Articles of the ECHR. According to the complainants, the mother and her six children were pushed back by Croatian authorities in November 2017 after crossing the border from Serbia. The group was intercepted by Croatian police officers while resting in a field and despite expressing the wish to seek asylum they were taken back to the border and told to return to Serbia by following a train track in the area. As a train passed, it hit one of the children, a six-year-old girl that died following the incident. On 21 March 2018, Croatian authorities apprehended the applicants, who had attempted a second crossing. Despite expressing a wish to apply for asylum they were detained in a transit immigration centre in Tovarnik. In its judgment, the ECtHR found several violations of the ECHR including ineffective investigation into the child’s death (Article 2 procedural aspect), degrading treatment of child applicants detained for a period above two months (Article 3 substantive aspect), failure to demonstrate required assessment, vigilance and expedition in proceedings in order to limit family detention as far as possible (Article 5 § 1), restriction of contact with the chosen lawyer, pressure placed on the lawyer aimed at discouraging pursuit of case (Article 34), and collective expulsion by Croatian police outside official border crossing and without prior notification of Serbian authorities (Article 4 § 4). In April 2022, in the case M.H. and Others v. Croatia,[24] the ECtHR’s Grand Chamber panel of five judges rejected the Croatian request for referral and the judgement became final.[25]
The organisation Centre for Peace Studies – who intervened in the case – and activist alliance Are You Syrious called for the interior minister and others responsible within the police to be dismissed in light of the ruling. In December 2022, the Action plan was published.[26] The plan concerns measures that the authorities have taken to bring the violations to an end and to provide redress to the applicants. The Centre for Peace Studies and the Human Rights House Zagreb prepared recommendations for the execution of the judgment of M.H. and Others against Croatia.[27]
In 2023, Centre for Peace Studies and the Human Rights House Zagreb prepared second recommendations for the execution of the judgment of M.H. and Others against Croatia.[28] With this submission, the organisations gave proposals for measures to execute the judgment and prevent further violations of the human rights of refugees and other migrants in Croatia. The aim of submission is to inform the Committee of Ministers that the measures proposed by the Government are not sufficient for the appropriate implementation of the judgement. Centre for Peace Studies and the Human Rights House Zagreb, stated that individual measures have been ineffective and insufficient. Regarding the general measures, they stated that structural and complex problems amounting to systematic human rights violations have continued and are still ongoing in Croatia.[29]
In July 2024, the Centre for Peace Studies and the Human Rights House Zagreb submitted a final communication to the Committee of Ministers of the Council of Europe, in accordance with Rule 9.2 of the Rules of the Committee of Ministers for the supervision of the execution of judgments and terms of friendly settlements, in the case of M.H. and Others v. Croatia.[30] With this third submission, they are calling on the Government of the Republic of Croatia to adopt a concrete action plan that includes an effective investigation, the sanctioning of those responsible, and compensation to the family. They also demand systemic changes to end unlawful pushbacks, ensure accountability, and establish effective oversight of police conduct and adherence to the rule of law in Croatia.[31]
The Ombudsperson, as a member of the Expert Council for the execution of judgments and decisions of the ECtHR, in 2023, proposed improvements to the Action Plan, judging that the proposed measures are not sufficient and do not address every conclusion and recommendation of international bodies and organisations to which the judgment refers. Given that the Ombudsperson’s proposals were not adopted to a satisfactory extent, the Ombudsperson, as a national institution for the protection of human rights, used the possibility to communicate its remarks and proposals directly to the Committee of Ministers of the Council of Europe in September 2023. The Ombudsperson proposed the establishment of a specialised department or designation of persons specially in charge of these issues within the State attorney’s offices, to deal with criminal charges against police officers. The Ombudsperson also proposed creating special protocols for such cases. Keeping in mind the numerous negative effects that deprivation of children’s freedom has on their physical and mental health and development, the Ombudsperson recommended the development of a plan to ban the placement of children in reception centres for foreigners, especially in cases of long-term deprivation of liberty, as was the case with the brothers and sisters of the deceased girl in the case M.H and Others v. Croatia. The Ombudsperson also proposed providing attorneys at law with unimpeded access and CSOs with effective access to reception centres for foreigners; establishing a system of accountability that would enable effective investigation of pushbacks and collective expulsion of migrants; providing the institution of the Ombudsperson with systematic and continuous access to data; as well as a series of measures aimed at informing migrants about their rights.[32]
The case is under enhanced supervision before the Committee of Ministers.[33]
In its 2023 Annual Report,[34] the Committee of Ministers reported that it “examined M. H. and Others v. Croatia, concerning inter alia the collective expulsion of a family of asylum-seekers along the railway line at the Croatian border with Serbia and the lack of effective investigation into the death of one of the children who was hit by a train, as well as the detention of the family in prison type conditions which violated the right of minor children under Article 3. It took note of the ex officio reopening of the criminal investigations on the circumstances leading to the death of the child and asked for the examination of all available evidence and proper involvement of the applicants and their legal representative in the investigation. The Committee welcomed the establishment of the independent border monitoring mechanism, the first of its kind in all Member States, and noted also the efforts to make the asylum procedure more accessible, including the translation of the asylum information in various languages. The Committee invited the authorities to provide information on the steps taken to limit the detention of children in immigration centres with prison-type elements; and noted with interest the introduction of a regular ex officio judicial review of detention orders as well as a positive trend in the application of alternative measures to immigration detention and the efforts taken by the authorities to ensure the police, including the border police act with diligence in asylum proceedings.”
With regard to the criminal investigation into the child’s death that was reopened ex officio,investigative actions were taken throughout 2022 and 2023, including interviews with key witnesses and suspects. However, on 24 May 2024, prosecutors dismissed the criminal complaint against three police officers, citing insufficient grounds for prosecution. The decision was communicated to the applicants’ lawyer.[35]
The Ombudswoman for Children in her report for 2024 stated that the office is monitoring the Decisions of the Committee of Ministers of the Council of Europe from September 2023 regarding the supervision of the execution of the judgment M.H. and others against Croatia. The aforementioned Decisions relate to the monitoring of the execution of the judgment in the form of implementing individual measures to continue the investigation, but also general measures, such as the importance of establishing an independent border control mechanism, treating migrants in accordance with the ECHR, improving access to the asylum procedure and limiting the detention of children in detention centres. The case of M.H. and Others against Croatia is under enhanced supervision, as a result of which the Republic of Croatia is obliged to develop an Action Plan by March 2025, which presents the measures that the State has taken and intends to take to implement the judgment.[36]
In 2022, a Rohingya child submitted complaints against Croatia and Slovenia before the UN Committee on the Rights of the Child for multiple violations of the Convention on the Rights of the Child (CRC). After many years looking for protection, he spent over a year in Bosnia and Herzegovina from 2020 to 2021, having to survive without State support or medical care, sleeping rough in forests and squatting in abandoned buildings. During this time, he was pushed back five times from Croatia to Bosnia and Herzegovina. In Slovenia, he was subjected to a “chain” pushback, by which he was forcibly returned first to Croatia by Slovenian authorities and then onwards by Croatian authorities to Bosnia and Herzegovina. The child faced beatings by Croatian border officers, had his belongings burnt and his shoes confiscated. The applicant’s complaints argue violations of the CRC, in relation to his expulsions and ill-treatment, and the States’ failure to assess his age or apply any of the relevant safeguards under Articles 3, 8, 20(1), and 37 CRC. The child corroborated his accounts with a range of digital evidence. The complaints were filed against Croatia and Slovenia with the support of ECCHR and Blindspots.[37] In January 2024, the Border Violence Monitoring Network submitted a Third Party Intervention in the mentioned case to the UN Committee on the Rights of the Child.[38] In its submission, BVMN tried to demonstrate the modus operandi of chain pushbacks involving Slovenia and Croatia. The report focuses mainly on incidents happening in 2020 and 2021, to cover the period at issue in the present case, but BVMN argues that more recent data were also highlighted to show that these practices still take place.
In 2024, the NGO No Name Kitchen (NNK) submitted a request for response regarding torture, inhuman, and degrading treatment by the Croatian border authorities to the UN Special Rapporteur on Torture.[39] The submission, as stated by NNK, presents detailed evidence of torture, inhuman, and degrading treatment carried out by Croatian border authorities against people on the move.
Border monitoring
The Independent Monitoring Mechanism for the Conduct of Police Officers of the Ministry of the Interior in the Area of Irregular Migration and International Protection (IMM) was established by a Cooperation Agreement in June 2021. The signatories of the Cooperation Agreement were the Ministry of the Interior of the Republic of Croatia (MoI), on the one hand, and the the Croatian Academy of Medical Sciences (CAMS), the Croatian Academy of Legal Sciences (CALS), the Centre for the Culture of Dialogue (CCD), the Croatian Red Cross (CRC), and a law professor as an independent legal expert, on the other hand.
Initially the IMM was established for a one-year period with the possibility of extension, while activities were planned to be carried out at the Croatian border (border crossings / police stations / police administrations) with Bosnia and Herzegovina, Montenegro and the Republic of Serbia and in the reception centres for foreigners. During that time, the IMM conducted 20 monitoring visits (both announced and unannounced). In December 2021, the IMM published its First Semi-Annual Report.[40] In June 2022, the IMM published its Annual Report for the period June 2021 – June 2022.[41] More information on IMM’s findings can be found in the previous update of the present AIDA report.[42]
A second agreement[43] was signed in November 2022 to be implemented for a period of 18 months with automatic extension, through announced and unannounced visits to police stations, police administrations, the external border, including the green border, at the border crossings with Bosnia and Herzegovina, Montenegro and Serbia, as well as in the Reception Centre for Applicants of International Protection and in reception centres for foreigners.[44]
The monitoring activities consist of: announced monitoring visits to all locations listed above as well as unannounced monitoring visits to all listed locations, including the green border; access to specific case files; access to the case file of the subject under observation; access to finalized case files concerning submitted complaints regarding alleged unlawful conduct towards irregular migrants and applicants for international protection and access to activities and reports of the MoI’s Police Directorate related to alleged unlawful conduct towards irregular migrants and applicants for international protection. According to the Cooperation Agreement, the activities of the Independent Monitoring Mechanism include 20 annual visits (announced and unannounced).
The direct activities of the Independent Monitoring Mechanism are carried out by monitors. Within 15 days from the date of signing the Cooperation Agreement, the Coordination Committee shall appoint two monitors from each civil society organization that is a signatory to the Agreement.
Within seven (7) days after the monitoring visits, monitors shall jointly compile an individual report and submit it to the Coordinating Committee.
The Ombudsperson reported that during 2023, the IMM has published neither an annual nor semi-annual report on its work.[45]
The IMM’s semi-annual report covering the period from November 2022 to July 2024 (monitoring activities carried out from 1 June to 31 December 2023) was published in July 2024.[46] According to the Report,[47] due to issues in the implementation of the Mechanism’s activities, including challenges in the disbursement of project funds and communication difficulties, the publication of the Semi-Annual Report and all related agreed activities (such as the launch of the website, etc.) were delayed.
The Semi-Annual Report covers the following periods:
- From November 2022, when the second Cooperation Agreement was signed, until 15 June 2023, when monitoring activities commenced. During this period, the IMM carried out a large portion of the activities defined by the Agreement. However, monitoring activities were not conducted due to numerous inconsistencies within the project itself, which the MoI subsequently presented to the signatories of the Agreement.
- From 15 June 2023 to 31 December 2023, 53 on-site monitoring visits were conducted, which served as the primary basis for the preparation of the Semi-Annual Report. During this period, the IMM also carried out other activities defined by the Agreement, as well as additional activities not explicitly outlined in the Agreement. During this time, the IMM did not regularly process payments for expenses and compensations to the members of the IMM, mainly due to administrative reasons.
- From 31 December 2023 to 23 July 2024, basic activities and four on-site monitoring visits were carried out, primarily triggered by information received via media reports or emails warning of potential human rights violations against migrants. The statistics included in Semi-Annual Report also cover this period, which, although not formally part of the Semi-Annual Report, is considered equally relevant to the IMM’s work.
The report also states that the Chair of the IMM’s Coordination Committee resigned from the position in September 2023, and that position remained unfilled by the time the report was written in July 2024.
Out of a total of 53 monitoring visits conducted between 1 June 2023 and 31 December 2023,
43 visits were unannounced (81%), while 10 were announced (19%). The monitoring covered a total of 20 locations, including: border police stations, border crossing points, police stations, transit reception centres, and reception centres for foreigners. In addition to independent monitoring visits, observers also conducted joint visits in cooperation with FRONTEX personnel at the Bajakovo Border Police Station on 27 September 2023, and at the Stara Gradiška Border Police Station.
According to the report, special attention was given to border crossings in the far eastern and southern parts of the border, due to reports received regarding the conduct of police officers.
Furthermore, interviews with migrants were conducted by IMM without the presence of police officers, with the aim of identifying every step of the procedure prior to their arrival at reception centres, in order to provide the most accurate possible representation of how the entire system operates.
The report states that findings indicate that, in terms of infrastructure, reception centres, border police stations, and police stations are adequate for both long-term and short-term accommodation of migrants. Depending on the location where migrants are apprehended and the required duration of their stay, they are transported to facilities where accommodation is appropriate for both the length of their stay and the number of individuals. In cases where improvements were necessary in this area, monitors issued recommendations (e.g., to the Ston Police Station and Gruda Border Police Station). Based on a standardized questionnaire, monitors collect data related to the location of monitoring, individuals interviewed, the conduct of police officers, the MoI’s information system, conditions related to accommodation and food, transportation (marked and unmarked vehicles, particularly for vulnerable groups), availability of access to international protection procedures, availability of translation and interpreters, and all other aspects relevant to the protection of the rights of irregular migrants.
In 2024, the IMM established a webpage.[48] A contact form is available at the website,[49] through which information on actions taken by police officers of the MoI in the area of border surveillance, irregular migration and international protection can be submitted. However, a disclaimer included on the site indicates that IMM is not a complaint-based mechanism (i.e., it is not a prosecutorial or judicial monitoring mechanism), and is thus not empowered to take up individual complaints.
The Ombudswoman, together with the European Commission, the EU Fundamental Rights Agency, Frontex Fundamental Rights Officer, IOM Croatia, UNHCR Croatia and the Ombudsman for Children, participated in the work of the IMM Advisory Board, with the task of providing guidance for improving the independence and effectiveness of that body. However, the Ombudswoman withdrew from the membership of the IMM Advisory Board in March 2025.[50]
The Ombudswoman states that the role of the IMM in dealing with complaints is unclear. On the one hand, the IMM website states that “the IMM is not a complaint mechanism“. However, it is evident from IMM’s Reports that the IMM did act on complaints in the past. Back in the Ombudswoman Report for 2022, it was emphasized that the IMM, as a mechanism established by an agreement, should not take over the responsibility of legally established institutions responsible for investigating allegations of illegalities or irregularities in police work, and that any (new) mechanism should have clear and transparent statutory powers.[51]
In 2024, UNHCR and the Croatian Law Centre in cooperation with the Ministry of Interior organised and held three workshops on access to the international protection system and protection of vulnerable groups for the border police officials. Lectures were held on the following topics: human rights of the persons on the move and access to the asylum system, recognition and protection of vulnerable groups, techniques of interviewing vulnerable groups, responsibility of police officers regarding the prevention of irregular migration. The lecturers were law professors, the Croatian Red Cross, the Women’s Room, and the CLC. Altogether, 47 police officers attended the trainings.
In 2023, the Directorate for European Affairs, International Relations, and European Union Funds of the Ministry of Interior adopted a Decision on the direct allocation of financial resources for the implementation of the project “Basic Rights Course for Border Police Officers” within the Integrated Border Management Fund. The purpose of the project is to strengthen the capacity of border police officers, to perform tasks of surveillance of the external border of the EU, applying the principles of fundamental human rights as well as measures and actions undertaken to prevent and detect irregular entry and stay of persons as well as suppression of cross-border crime.[52]
Legal access to the territory
Based on the 2015 Decision on relocation and resettlement of third-country nationals or stateless persons who meet the conditions for approval of international protection,[53] Croatia committed to accept 150 people through resettlement. Due to the high number of people who withdrew from the process during the selection missions, this quota was filled in October 2018 following four selection missions. By way of illustration, another mission took place in February 2019, during which 141 Syrian refugees identified by UNHCR were interviewed and 103 selected for resettlement.[54] In addition, Croatia continued to implement the 2017 Decision on resettlement of third-country nationals or stateless persons who meet the conditions for approval of international protection, which required Croatia to accept up to 100 persons.
In 2019, Croatia fulfilled its pledge within the EU resettlement scheme to effectively resettle 250 Syrian refugees from Türkiye, according to the Decisions on Relocation and Resettlement of Third-country Nationals or Stateless Persons Eligible for International Protection from 2015 (150 persons) and 2017 (100 persons).[55]
A Decision on the resettlement of third-country nationals or stateless persons who meet the conditions for approval of international protection for 2019 entered into force in February 2019.[56] The Decision foresaw that Croatia would accept up to 150 persons through resettlement or would participate in other forms of solidarity with EU Member States. However, in 2022 a Decision to revoke the Decision on resettlement of third country nationals or stateless persons who meet the conditions for approval of international protection for 2019 was issued.[57]
Although the Ministry of Interior reported in previous years that they do not keep statistics on the average duration of the resettlement process, they stated that the procedure from the receipt of the file from UNHCR to the transfer of refugees to Croatia lasts around six months on average.
In addition, a new Decision on relocation of the third country nationals or stateless persons who meet the conditions for approval of international protection was adopted in July 2022.[58] In accordance with the aforementioned decision, Croatia is to participate in the relocation of 60 third-country nationals or stateless persons who meet the conditions for granting international protection from Greece, Cyprus, Italy, Malta and Spain. Based on that decision, on 1 March 2023, Croatia accepted 10 applicants for international protection from Italy, as part of voluntary programme of solidarity with EU Member states under great migration pressure. Applicants were citizens of the Ivory Coast (three married couples, one of whom has a minor child, and three single men). The mentioned persons arrived in Croatia accompanied by IOM employees.[59] According to information provided by IOM, in 2023, IOM assisted in the relocation of migrants from Italy to Croatia by purchasing travel tickets, organising travel, stabilising their health condition before departure, assisting in transit and operational escort.[60]
In May 2023, the European Commission kicked off the new pledging exercise for a 2-year period (2024 and 2025), inviting countries to submit their national commitments. Croatia has pledged to resettle 100 persons over the period 2024-2025.[61]
Implementation of the Decision on Relocation of Citizens of Third Countries or Stateless Persons who meet the Conditions for Approval of International Protection, adopted by the Croatian Government in July 2022, continued throughout 2024. In 2024, a total of 28 individuals seeking international protection were relocated from Italy to Croatia.[62]
Apart from that, in response to the call of the European External Action Service (EEAS) for evacuations from Afghanistan of people whose lives and security were endangered by the arrival of the Taliban regime, Croatia accepted 41 Afghan nationals between August and December 2021, including 16 children. Most were granted asylum, while three left Croatia to reunite with family members.[63]
There is no humanitarian visa foreseen under Croatian legislation for persons in need of international protection.
From January 2022, the Croatian Law Centre implemented the project “Complementary pathways for Southeast Europe – COMP4SEE“. The project aimed to contribute to the development of complementary pathways by creating new models of private sponsorship and by making and advocating for recommendations for improving national systems in the area of family reunification.[64] Through this project, by the end of June 2024, 17 families of refugees have been successfully reunited in Croatia. In particular, 17 individuals granted international protection in Croatia were reunited with 23 family members.[65]
[1] Ministry of Interior: Statistical overview of the fundamental safety indicators and work results in 2024, page 158, available at: https://mup.gov.hr/UserDocsImages/statistika/2025/statistika%20za%202024%20hrv%20i%20eng/Statisticki_pregled_2024_web.pdf.
[2] Ombudswoman: Report of the Ombudswoman for 2024, page 268, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144/.
[3] Ombudswoman for Children: Report on the work of the Ombudswoman for Children in 2024, page 199, available at: https://dijete.hr/hr/download/izvjesce-o-radu-pravobraniteljice-za-djecu-za-2024-godinu/.
[4] Ministry of Interior: Vice President Božinović presented the Memorandum of Understanding in the field of returns between the Republic of Croatia and Frontex, 13 July 2023, available at: https://bit.ly/4b4GuKj.
[5] Ministry of Interior: The Second Annex to the Agreement on the direct allocation of financial resources for the implementation of the project “Strengthening national and FRONTEX capacities for the Surveillance of the of the European Union’s External Border ” has been concluded, 9 August 2024, available at: https://mup.gov.hr/vijesti/sklopljen-je-drugi-dodatak-sporazumu-o-izravnoj-dodjeli-financijskih-sredstava-za-provedbu-projekta-jacanje-nacionalnih-i-frontex-ovih-kapaciteta-za-nadzor-vanjske-granice-europske-unije/294203.
[6] Ministry of Interior: Decision on the direct allocation of financial resources for the implementation of the project “TRANSFER – Providing Support to Applicants for International Protection by Ensuring Appropriate Transport”, available at: https://eufondovi.mup.hr/UserDocsImages/dokumenti/Odluke%20o%20dodjeli%20financijskih%20sredstava/14.%20Odluka%20-%20TRANSFER.pdf?vel=939115.
[7] Croatian Red Cross: Annual report on the work of the Croatian Red Cross in 2024, page 84, available at: https://www.hck.hr/UserDocsImages/vijesti/2025/AD%205)%20Izvje%C5%A1%C4%87e%20o%20radu%20HCK%20u%202024.pdf?vel=5096156.
[8] Government of the Republic of Croatia: Ministers of Croatia, Slovenia and Italy discuss border situation, memorandum signed on trilateral border patrols; 20 January 2025, available at: https://vlada.gov.hr/news/ministers-of-croatia-slovenia-and-italy-discuss-border-situation-memorandum-signed-on-trilateral-border-patrols/43687.
[9] See, Border Violence Monitoring Network (BVMN), Croatia, available at: https://borderviolence.eu/reports?category=monthly-report.
[10] Ombudswoman: Report of the Ombudswoman for 2024, page 270, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144/.
[11] Ombudswoman for Children: Report on the work of the Ombudswoman for Children in 2024, page 198, available at: https://dijete.hr/hr/download/izvjesce-o-radu-pravobraniteljice-za-djecu-za-2024-godinu/.
[12] No Name Kitchen: “Burned Borders: A No Name Kitchen Investigation on Illegal Croatian Police Practices.”, October 2024, available at: https://bloodyborders.org/wp-content/uploads/2024/10/Burned-Borders-No-Name-Kitchen.pdf.
[13] The Guardian: Croatian police accused of burning asylum seekers’ phones and passports (10 October 2024), available at: https://www.theguardian.com/global-development/2024/oct/10/photos-croatia-police-phones-passports-asylum-seekers.
[14] Ministry of the Interior: Reacting to the accusations from The Guardian’s Article, 10 October 2024, available at: https://mup.gov.hr/vijesti/reagiranje-na-optuzbe-iz-clanka-portala-the-guardian/294309.
[15] Centre for Legal Aid – Voice in Bulgaria, Centre for Peace Studies , Lebanese Center for Human Rights), Foundation Mission Wings , Hungarian Helsinki Committee, I Want to Help Refugees/Gribu palīdzēt bēgļiem, 11.11.11, Sienos Grupė , We Are Monitoring Association: Pushed, Beaten, Left to Die – European Pushback Report 2024, page 13, available at: https://www.cms.hr/publikacija/pushed-beaten-left-to-die-european-pushback-report-2024/.
[16] Information provided by the Centre for Peace studies, 27 February 2025.
[17] Border Violence Monitoring Network (BVMN), Croatia, available at: https://borderviolence.eu/reports?category=monthly-report.
[18] See e.g., Index, Pursuit Near Sinj: Four Dead, Two Children Fighting for Their Lives; Police Release Details, 16 May 2024, available in Croatian at: https://www.index.hr/vijesti/clanak/potjera-kod-sinja-4-mrtvih-dvoje-djece-se-bori-za-zivot-policija-odrzala-presicu/2565581.aspx; https://www.index.hr/vijesti/clanak/bozinovic-ovo-nije-bila-klasicna-potjera-tragamo-za-jos-jednim-vozilom/2565622.aspx?index_ref=clanak_vijesti_najnovije_d.
[19] Croatian police accused of burning asylum seekers’ phones and passports (Guardian, 10 October 2024), available at: https://www.theguardian.com/global-development/2024/oct/10/photos-croatia-police-phones-passports-asylum-seekers.
[20] Ministry of Interior: Reaction to the accusations from The Guardian Article, 10 October 2024.
[21] United Nations, Committee on the Elimination of Racial Discrimination, Concluding observations on the combined ninth to fourteenth periodic reports of Croatia, CERD/C/HRV/CO/9-14, 2 October 2023, available at: https://bit.ly/3xdOlYe, 8.
[22] GREVIO, (Baseline) Evaluation Report on legislative and other measures giving effect to the provisions of the Council of Europe Convention on Preventing and Combating Violence against Women and Domestic Violence (Istanbul Convention)-CROATIA, 26 May 2023, available at: https://bit.ly/4bdxB10.
[23] Human Rights Committee: Concluding observations on the fourth periodic report of Croatia, available at: https://digitallibrary.un.org/record/4061868/files/CCPR_C_HRV_CO_4-EN.pdf?ln=en.
[24] ECtHR, Judgment in the case of M.H. and others v. Croatia (Applications nos. 15670/18 and 43115/18), available at: http://bit.ly/3yWYBRT.
[25] ECtHR: Grand Chamber Panel’s decisions – April 2022, Press Release – Referrals to Grand Chamber, published on April 4, 2022, available at: https://bit.ly/3z0PoI9.
[26] ECtHR: Action Plan-Communication from Croatia concerning the case of M.H. and Others v. Croatia (Application No. 15670/18), available at: http://bit.ly/3LLlVJH.
[27] Recommendations of the Centre for Peace Studies and the Human Rights House Zagreb for the execution of the judgment of M.H. and Others against Croatia, available at: https://bit.ly/42Rajdg.
[28] Final recommendations of the Centre for Peace Studies and the Human Rights House Zagreb for the execution of the judgment of M.H. and Others against Croatia, 28 July 2023, available at: https://bit.ly/3XscvZq.
[29] Human Rights House Zagreb and the Centre for Peace Studies RULE 9.2. COMMUNICATION in accordance with the Rules of the Committee of Ministers regarding the supervision of the execution of judgments and of terms of friendly settlements in the Case of M.H. and Others v. Croatia No. 15670/18 and 43115/18, 18 July 2023, available in English at: https://bit.ly/3VMzAVL.
[30] Centre for Peace Studies, Human Rights House Zagreb:Communication to the Committee of Ministers of the Council of Europe, 26 July 2025, available at: https://www.cms.hr/wp-content/uploads/CPS_HRHZ_Rule_9.2_M.H._July_2024.pdf.
[31] Information provided by the Centre for Peace Studies, 27 February 2025.
[32] Ombudswoman, Report of the Ombudswoman for 2023, available in Croatian at: https://bit.ly/4crt2kR.
[33] CoE, Department for the execution of judgements of the European Court of Human Rights, Croatia: Main issues, 18 February 2025, available at: https://rm.coe.int/mi-croatia-eng/1680a23c83.
[34] Committee of Ministers, 17th Annual Report of the Committee of Ministers, April 2024, available at: https://bit.ly/4eG1xGf, 55.
[35] M.H. and Others v. Croatia, Status of Execution, available at: https://hudoc.exec.coe.int/eng#{%22execidentifier%22:[%22004-60187%22]}.
[36] Ombudswoman for Children: Report on the work of the Ombudswoman for Children in 2024, page 199, available at: https://dijete.hr/hr/download/izvjesce-o-radu-pravobraniteljice-za-djecu-za-2024-godinu/.
[37] ECCHR, Rohingya child challenges Croatia and Slovenia over violent pushbacks, 6 July 2022, available at: https://bit.ly/3PDQ0wG.
[38] Border Violence Monitoring Network: Third Party Intervention in the case U.F. v Croatia and Slovenia to the UN Committee on the Rights of the Child, 5 January 2024, available at: https://borderviolence.eu/app/uploads/BVMN_TPI_UNCRC_UFvCroatiaSlovenia-1.pdf and https://www.ecchr.eu/fileadmin/user_upload/BVMN_TPI_Submission_UF_vs._Croatia_and_Slovenia.pdf.
[39] No Name Kitchen: Request for response regarding torture, inhuman, and degrading treatment by the Croatian border authorities, 26 September 2024, available at: https://www.nonamekitchen.org/wp-content/uploads/2024/10/UNSPR_Sept24_Torture.pdf.
[40] Independent Monitoring Mechanism: First Semi-Annual Report, available at: https://www.nmn.hr/UserDocsImages/dokumenti/1.%20SEMI-ANNUAL%20REPORT%2030%20JUNE%202022.pdf?vel=2001053.
[41] Independent Monitoring Mechanism: Annual Report of the Independent Mechanism of Monitoring the actions of police officers of the Ministry of the Interior in the area of illegal migration and international protection, June 2021 – June 2022; available at https://www.nmn.hr/UserDocsImages/dokumenti/Annual%20report%20of%20the%20Independent%20monitoring%20mechanism%20-%201%20July%202022.pdf?vel=2061078.
[42] AIDA, Country Report: Croatia, 2022 Update, June 2023, available at: https://bit.ly/3xp0QQG.
[43] Cooperation Agreement to Implement an Independent Monitoring Mechanism on the Protection of Fundamental Rights in Actions of Police Officers of the Ministry of the Interior in the Area of Border Surveillance, Irregular Migration and International Protection; available in Croatian at: https://www.hck.hr/UserDocsImages/Nezavisni%20mehanizam/Sporazum%20o%20suradnji%20radi%20provedbe%20nezavisnog%20mehanizma.pdf?vel=2506032 and in English at: https://www.hck.hr/UserDocsImages/Nezavisni%20mehanizam/22_146%20Sporazum%20NMN-final_EN.pdf?vel=217379.
[44] Ministry of Interior: A cooperation agreement was signed for the implementation of an independent monitoring mechanism for the protection of fundamental human rights in the conduct of police officers of the Ministry of Interior in the field of border protection, illegal migration and international protection; available at: http://bit.ly/3JGyjbs.
[45] Ombudswoman, Report of the Ombudswoman for 2023, available in Croatian at: https://bit.ly/4crt2kR.
[46] Ombudswoman: Report of the Ombudswoman for 2024, page 268, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144/.
[47] Independent Monitoring Mechanism: Semi-annual report of the independent monitoring mechanism on the conduct of police officers of the Ministry of the Interior in the area of border protection, irregular migration, and international protection, July 2024, available at: https://www.nmn.hr/UserDocsImages/dokumenti/SEMI-ANNUAL%20REPORT%20-%202024.pdf?vel=1897403.
[48] Available at https://www.nmn.hr/?id=6.
[49] The contact form is available at: https://www.nmn.hr/contact/32.
[50] Ombudswoman: Report of the Ombudswoman for 2024, page 268, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144/.
[51] Ombudswoman: Report of the Ombudswoman for 2024, page 275, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144.
[52] Ministry of Interior, Basic rights course for border police officers, 17 October 2023, available at: https://bit.ly/4c7E8M0.
[53] Official Gazette 78/2015, 17 July 2015, available in Croatian at: https://bit.ly/3xkI6So.
[54] SHARE, Integration Magazine, April 2019, available in English at: https://bit.ly/4cmAoWE.
[55] EMN, Bulletin, November 2019, available at: https://bit.ly/3KUi6Ad.
[56] Official Gazette 16/2019.
[57] Official Gazette 88/2022, available at: http://bit.ly/3lLCA5g.
[58] Official Gazette 88/2022, available at: https://bit.ly/3KNVO3f.
[59] Ministry of Interior: Ten people arrived in the Republic of Croatia as part of the relocation mechanism, 3 March 2023, available in Croatian at: https://bit.ly/4c5DxdR.
[60] Information provided by IOM, 29 January 2024.
[61] European Commission: Pledges submitted by the Member States for 2024-2025.
[62] Croatian Law Centre: The Croatian Asylum System in 2024- National Report; available at: https://www.hpc.hr/wp-content/uploads/2025/05/National-Asylum-Report-2024_CLC.pdf.
[63] Ombudsperson, Annual report 2021, available in Croatian at: https://bit.ly/3v5TsVi.; Ombudsperson for Children: Report on the work of the Ombudsman for Children in 2021, available in Croatian: https://bit.ly/3KzksTm
[64] Croatian Law Centre, Complementary pathways for Southeast Europe –COMP4SEE, available at: https://bit.ly/3xkIlNi.
[65] Croatian Law Centre, Successfully Reunited 17 Refugee Families, 2 July 2024, available at: https://www.hpc.hr/en/2024/07/02/successfully-reunited-17-refugee-families/.