Author
Accommodation of applicants is organised in the two reception centres for applicants for international protection, one in Zagreb and the other in Kutina.
Although in 2024, due to the smaller number of applicants, the reception capacities were not as burdened as they had been the year before, complaints about accommodation conditions continued in 2024.
During 2024, applicants for international protection accommodated in Reception Centers reported to civil society organizations inadequate hygiene and accommodation conditions, cockroaches and bedbugs in rooms, improper distribution of basic hygiene items, clothing, footwear and bedding, as well as a lack of information about available services and organizations that provide support to international protection seekers outside the Reception Center. In addition, they indicated that they were not familiar with the mechanisms for reporting potential criminal offenses, both within the center itself and outside of it.[1]
In 2024, AYS[2] received several complaints regarding the conditions in Reception Centres for applicants for international protection. With regard to the Reception Centre in Kutina, reported issues included cockroach infestations, shared toilet facilities, accommodation in external housing units, and a lack of electricity in the kitchen. At the beginning of the year, the most frequent complaints concerned limited access to healthcare services, particularly specialist care. Throughout 2024, complaints continued about cockroaches and bedbug at the Reception Centre in Zagreb.
As noted above, the Ombudswoman reported in 2024 that one applicant complained that, after thoroughly cleaning and painting the walls of his room in the Reception Centre, he was, for reasons unknown to him, moved to another room, which had bedbugs. Another complained that, as a citizen of Ukraine, he was accommodated with citizens of the Russian Federation. The procedures initiated following complaints have resulted in resolving the problems in individual cases, but systematic attention needs to be paid to the issues of exposure to hygiene, health and safety risks, the gender and age characteristics of applicants, their vulnerability, as well as measures that could have an impact on the prevention of attacks, gender-based violence and harassment.[3]
In the Ombudswoman report for 2024, a case of an applicant for international protection who sought asylum in Croatia due to fear of persecution related to his activism in his country of origin was mentioned. In 2023, the applicant submitted a complaint to the Ombudswoman regarding inadequate living conditions in the Reception Centre for Applicants for International Protection, which led the Ombudswoman to initiate an investigation procedure that same year. The investigation procedure continued in 2024. In addition to filing complaints with the Ministry of the Interior and the Ombudswoman, the applicant also published videos of the living conditions on a YouTube channel, which were later picked up by some media outlets in Croatia. The Ministry of the Interior rejected his application for international protection. Among the reasons for rejection, it was stated that the applicant had violated the privacy and data protection rights of other applicants by recording and publicly sharing videos from inside the reception centre, and that he had made unfounded claims in his posts regarding inadequate food and healthcare for applicants in Croatia. It was further stated that, by doing so, he failed to demonstrate sufficient respect for Croatian institutions and damaged the country’s international reputation. In July 2024, the applicant protested in Zagreb against the conduct of Croatian security institutions toward applicants for international protection. He was subsequently convicted of a misdemeanor and was detained for three months in the Transit Reception Centre for Foreigners in Trilj. At the end of August 2024, a formal note was sent to of Croatia by UN Special Rapporteurs on the situation of human rights defenders, the promotion and protection of the right to freedom of opinion and expression, the rights to freedom of peaceful assembly and association, as well as the UN Working Group on Arbitrary Detention. They expressed serious concerns over the rejection of the applicant’s application for international protection and his detention, suggesting that these actions appeared to be linked to his exercise of freedom of expression and his activism for the rights of applicants for international protection in Croatia. They requested, among other things, that Croatia clarify the factual and legal grounds for rejecting his application and his detention; explain what steps had been taken to ensure that he was not subjected to any form of retaliation, including the rejection of his application or detention, for his work as a human rights defender and his exercise of the right to freedom of expression; and, if no such steps were taken, to explain the reasons why. They also requested information on what measures had been implemented to ensure that the applicant would not be exposed to refoulement. Croatia rejected the claims that living conditions in the Reception Centre for Applicants for International Protection in Zagreb were poor, and denied that improvements were made only after the video was published. It stated that adequate material conditions for reception were provided to all. Furthermore, it emphasized that by recording other applicants and publishing their images online, the applicant had endangered other applicants’ safety and the safety of their families, relatives, or friends in their countries of origin, and that through his actions and media appearances, he attempted to influence the outcome of his own case without regard for other applicants.[4]
In 2024, reception and accommodation of applicants for international protection continued to be challenging due to the high number of applicants for international protection.
As noted above, during 2024, as reported by the Croatian Red Cross, a total of 16,349 applicants for international protection were accommodated in Reception Centres for Applicants for International Protection—6,229 at the Reception Centre in Kutina and 10,120 at the Reception Centre in Zagreb.[5]
The CRC also reported that during 2024 that due to significant influx of newly arrived applicants for international protection in both Reception Centres for Applicants for International Protection the full engagement of all CRC staff was needed in reception and accommodation activities to ensure that all beneficiaries were provided with beds, hygiene kits, bedding packages, as well as clothing and footwear. During this period, a large number of applicants stayed in the reception centres for only a few days, with some remaining less than 24 hours.[6]
In October 2023, the United Nations agencies operating in Croatia (UNCT – United Nations Country Team) addressed the Ministry of the Interior regarding the increase in the number of irregular migrants, applicants for international protection, and unaccompanied children, offering cooperation with the proposal of a meeting to be informed about plans on accommodation facilities for applicants for international protection. The Ministry of Interior responded, informing the UNCT about all the activities it carries out in the field of international protection, expressing its readiness to continue cooperation with UN organisations, with an emphasis on the need for further training of Ministry of Interior’s officials, especially on vulnerable groups in the field of international protection. UNICEF Office for Croatia plans to expand its program activities in 2024, which will be aimed at those seeking international protection, and discussions are ongoing with the Ministry of Interior.[7] The UNICEF Office for Croatia and its implementing partners did not carry out any activities in the Reception Centre for Applicants for International Protection in 2024, however UNICEF had unobstructed access to the Reception Centre for Applicants for International Protection in Zagreb. Cooperation with the Ministry of the Interior also continued through the regular exchange of data on children accommodated in the Reception Centres for Applicants for International Protection. However, according to information received from UNICEF in 2024, more than 30% of children accommodated in the Reception Centres for Applicants for International Protection in Zagreb and Kutina were young children aged 0 to 7. Additionally, many parents or guardians experience the consequences of migration, which can further hinder their integration into the new environment. The lack of adequate support for parents, as well as the lack of professional services for children and age-appropriate content in the reception centres, further aggravates the situation. UNICEF therefore highlighted the urgent need to ensure access to quality early childhood education and care for all children in reception centres, as well as the provision of child-friendly activities and psychological support.[8]
In March 2020, access to Reception Centres for Applicants of International Protection became subject to visitation restrictions, i.e., only personnel of the Ministry of Interior necessary for the normal functioning of the Centre was allowed entrance to the facilities. This means that civil society organisations had to interrupt their activities in the centres, with the exception of the Croatian Red Cross and MdM.[9] The same organisation continued in 2024 and restrictions for nonessential entries to the centres remained in place until the end of 2024. As noted above, as part of the Coordination for Integration, an informal network of civil society organizations led by the CPS, CPS organized a meeting with the Ministry of the Interior in November 2024 to discuss the return of organizations to the Reception Centre for Applicants for International Protection in Zagreb. During the meeting, representatives of eight civil society organizations (AYS, Society for Psychological Assistance, CPS, Center for Cultural Dialogue, JRS, Croatian Law Centre, Borders:none, Rehabilitation Center for Stress and Trauma) presented their reasons for requesting access to the reception centre in order to organize activities and provide support to applicants for international protection. Although an agreement was not reached during the meeting, the Ministry of the Interior agreed to consider the organizations’ request and to explore possible options to offer civil society organizations access to space or alternative solutions to improve the visibility of their activities to applicants for international protection within the Reception Centre. It was also agreed that at least one more meeting would be held in 2025.[10]
Overall living conditions
Applicants can go outside whenever they want but have to return by 11 pm. Under the House Rules, return to centre after 11pm is possible with the permission of the officials of the Reception Centre.
Applicants may stay outside the Reception Centre for Applicants for International Protection for longer than 24 hours with the prior consent of the Reception Centre. If, on the basis of individual assessment, consent is denied, the Reception Centre shall issue a decision thereon.[11]
State of the facilities
People in the reception centres share rooms. In Kutina, families share a room, unaccompanied children and single women are accommodated separately in rooms, while in Zagreb a maximum 4 persons can share a room.[12] Families are accommodated in the same room, but in Zagreb if there are more than 5 members of one family, they are given 2 rooms if possible.[13] In previous years, there were sufficient showers and toilets and facilities were cleaned on a regular basis, however in 2023 challenges occurred due to a high increase in the number of accommodated applicants which has continued in 2024, although, as noted above, the number of applicants was not that high as in 2023.
Food and religious practice
In both centres, residents receive three meals per day and pregnant women, recent mothers and children up to 16 years shall be also provided with an afternoon snack.[14]
Kitchens, equipped by the Croatian Red Cross, where applicants can prepare meals by themselves, are available in the Reception Centres in Kutina,[15] and in Zagreb.[16] However, there is no information available whether kitchens were in function in the period from 2020 until the end of 2024.
No problems were reported in connection to the possibility of practicing religion. In the Reception Centre in Zagreb, there is a room for Muslim applicants to pray. In Kutina, applicants can practice their religion in their rooms.
Activities in the centres
The staff of the Ministry of Interior working in the reception centres was generally sufficient in previous years. However in 2023 and 2024, the main challenges resulted from the high numbers of applicants.
Access to reception centres was restricted from March 2020 until the end of 2024, with the exception of personnel of the Ministry of Interior, Croatian Red Cross and MdM. Apart from CRC and MdM, civil society organisations were not present in the centres in the course of 2024.
As developed above, as part of the Coordination for Integration, an informal network of CSOs, the Center for Peace Studies organized a meeting with the Ministry of the Interior in November 2024. The topic of the meeting was the access of CSOs to the Reception Center for Applicants for International Protection in Zagreb. During the meeting, representatives of eight CSOs presented the reasons for requesting access to the Reception Center in order to organize activities and provide support to applicants for international protection. The Ministry of the Interior agreed to consider the request and explore the possibilities of offering CSOs premises or alternative solutions to increase the visibility of their activities for applicants within the Reception Centre.
In 2024, as in previous years, most of the applicants remained in the centre for a very short period of time and fluctuation of applicants who were voluntarily leaving the centre was significant.
The Croatian Red Cross (CRC)[17] carried out the following activities with applicants for international protection in reception centers in Zagreb and Kutina during 2024 as part of the AMIF funded project:
- Providing psychosocial and practical support and assistance to applicants, based on the identified needs of individuals and families;
- Identifying vulnerable groups (children, unaccompanied minors, elderly persons, single women, individuals with physical and mental health challenges, individuals who have experienced trauma or torture, potential victims of human trafficking, and victims of domestic violence) and planning work tailored to their specific needs;
- Participating in the organization of daily life in the reception centers: assisting with the reception and accommodation of newly arrived applicants; encouraging hygiene and cleanliness maintenance; procuring and distributing hygiene supplies and humanitarian aid; providing various types of information and assistance in solving everyday problems; organizing an Info Corner and Job Center (where applicants participate in maintaining the reception centers and their surroundings); ensuring access to laundry machines and kitchenettes for users; conducting workshops and educational sessions on personal hygiene and space cleanliness to promote hygienic habits, healthy lifestyles, and disease prevention, including the prevention of sexually transmitted diseases;
- Assisting with access to healthcare services, ensuring specialist medical examinations as prescribed by doctors, providing medications and nutritional supplies as recommended by medical professionals, procuring medical equipment and aids, and conducting first aid courses;
- Organizing social, educational, and sports activities aimed at empowerment, better socialization, adaptation, and strengthening mutual understanding and cooperation: children’s workshops, creative workshops, sports activities, football, gym access for men and women, computer workshops, technical workshops, Croatian language workshops, library access, music room activities, intercultural learning workshops, and education on hygiene and health promotion;
- Involving applicants in local community programs and activities, and engaging local community volunteers in activities with applicants to promote better socialization, integration into community life, and prevention of conflict situations, misunderstandings, discrimination, and xenophobia;
- Conducting tasks related to the Tracing Service and restoring family links.
Throughout 2024, CRC worked with preschool children in children’s playrooms and children’s IT workshops that were available throughout the day, with, on average, between 100 and 150 children on a daily basis. Children who went to school were provided with assisstance in learning and writing homework on a daily basis. CRC reported that in 2024 children received support through a playroom and a children’s computer workshop, with a total of 761 children participating in these activities throughout the year. Although a large number of children left the reception centre shortly after arrival and were not enrolled in school, learning support was provided to 286 children who were included in the school programme. The CRC also supplied them with all the necessary school supplies and equipment. For adults, Croatian language and IT workshops and sports activities were organized throughout the year, but also to begin the process of integration into Croatian society. A Croatian language workshop for adults, organised by the CRC, was attended by 300 users, while 384 users participated in computer workshops for adults. Various intercultural activities at the reception centres involved more than 2,200 applicants, and over 110 applicants for international protection took part in community-based activities.[18]
Throughout 2024, the trend of a high number of newly arrived applicants in both reception centers continued, which required additional efforts and the involvement of CRC staff in reception and accommodation activities to ensure all beneficieries had access to beds, hygiene packages, bedding sets, clothing, and footwear. During this period, a significant number of applicants for international protection stayed in the reception centers for only a few days, with some staying for less than 24 hours. Consequently, it was impossible to include them in the activities that the CRC organized daily to make their stay in the reception centers as comfortable and fulfilling as possible. Due to these short stays, it was also impossible to conduct initial interviews with beneficieries to assess their needs and identify their psychological and physical condition.[19] Particular challenges arose in working with applicants for international protection who were returned to Croatia under the Dublin procedure (see The situation of Dublin returnees).
In 2024, the UNICEF Office for Croatia continued its cooperation with the Ministry of Interior in implementing activities in the field of protection of children and families of refugees and migrants, in particular with the Directorate for Immigration, Citizenship and Administrative Affairs and representatives of the Reception Centre for Applicants for International Protection. The cooperation continued successfully, and the activities of the UNICEF Office for Croatia were supported through the participation of representatives of the Ministry of Interior in the Program Committee for support for the implementation of the Program “Support to Children and Families in Migration in the Protection and Integration Process in Croatia“. Cooperation also continued through the regular exchange of data on refugee and migrant children in Reception Centres for applicants for international protection, the Reception Center for Foreigners and Transit Reception Center for Foreigners.[20]
Organisations continued providing assistance and activities also outside the Reception Centres:
In 2024, AYS[21] continued to run a so-called “free shop” where applicants for and beneficiaries of international protection as well as persons under temporary protection (but also other persons in need) could get clothes, shoes, hygiene items, dishes and other household items free of charge. The Free Shop is open three days a week (Monday, Wednesday, Friday). During 2024, in total 3,023 visits were recorded and 43,545 items distributed. According to AYS, over the past year, a quarter of the beneficiaries were persons under temporary protection who had fled from Ukraine, followed by the highest number of beneficiaries from the Russian Federation, Syria, and Türkiye. A significant portion of the beneficiaries also included individuals returned under the Dublin Regulation. During 2024, applicants for international protection often complained to AYS about the impossibility of obtaining adequate clothes, shoes and hygiene supplies in the Reception Centre.
During 2024, AYS conducted 5 informal Croatian language courses for applicants for and beneficiaries of international protection, each lasting for 4 months with 2 of those courses continuing in 2025. Courses took place in the premises of the AYS integration centre. The courses were held in morning and afternoon sessions, with groups of ten participants per session. The demographic composition of participants varied depending on the course cycle, and participants were from the following countries of origin: Russian Federation, Azerbaijan, Syria, Iran, Türkiye, Palestine, Iraq, and Mongolia.
Cooperation with Croaticum at the Faculty of Humanities and Social Sciences of the University of Zagreb, continued and, in November 2024, a volunteer-organized B1.1 Croatian language course was launched for applicants and beneficiaries of international protection.
AYS gathered interested participants, while Croaticum conducted the initial language testing, and the B1.1 course continued in 2025.
As of 2024, AYS restructured its employment support program as a volunteer-based initiative. In 2024, the program provided employment assistance to approximately 48 individuals through 149 instances of support —including applicants for international protection as well as persons under international and temporary protection. In practice, this support included help with CV writing, identifying suitable job opportunities based on the individual’s education, work experience and skills, and contacting potential employers. The program also introduced CV and job application (cover letter) workshops, as well as informational sessions on employment rights and responsibilities, with the aim of empowering beneficiaries to navigate the Croatian labor market independently. The majority of AYS beneficiaries in the employment support program were applicants for international protection. Challenges reported by AYS included language barriers, non-payment of wages or overtime, lack of information about employee rights (e.g., maternity and parental leave, annual leave entitlements), employers avoiding contract signing, and difficulties in accessing sick leave rights for female applicants for international protection when their child was ill.
Throughout 2024, AYS carried out monthly activities aimed at providing meaningful leisure time for children applicants and beneficiaries of international protection. These monthly activities included a variety of creative and drama workshops, outdoor events, and visits to landmarks and institutions. Over 30 children and their parents participated in these activities. The program was implemented by a team of 14 volunteers, with financial support from the European Solidarity Corps. In November 2024, AYS opened a Mobile Play Centre, in partnership with Step by Step Open University (Pučko otvoreno učilište Korak po korak), funded by the City of Zagreb. An AYS staff member, acting as one of the coordinators of the Play Centre, facilitates weekly workshops for children and parents. The Play Centre is open to all, with a special focus on families at risk of social exclusion.
In 2024, the association Borders: None supported applicants for international protection through a diverse range of activities. These activities included legal assistance, language courses, various workshops, a mentoring program, and tech courses. They provided legal assistance mainly related to the international protection procedure using various tools such as email, telephone, and in-person consultations. This multi-channel approach increased their reach and improved accessibility for those unable to attend face-to-face counselling. Language support was offered through Croatian A1/A2 courses and English courses for beginners, as well as professional English classes for intermediate and advanced learners. The Croatian course helped participants develop basic communication skills, enabling faster integration into society. Borders: None also provided job search coaching, a personalized service that improved participants’ chances of finding employment and becoming more independent when seeking or changing jobs. Additionally, they organized several workshops covering topics such as cultural orientation, practical everyday skills, CV writing, professional culture, and workers’ rights and obligations. The association continued its mentoring program to promote the social inclusion of applicants for international protection in the local community, with support from local volunteer mentors. To address growing digital needs, Borders: None introduced a digital literacy course focused on smartphone use, alongside its programming course. This initiative ensured the participation of applicants who lacked access to laptops. The programming course equipped participants with technical coding skills to become future programmers, while the digital literacy course boosted their confidence in using technology for communication, job searching, and everyday tasks. All activities took place on the association’s premises.[22]
The Croatian Law Centre’s (CLC) lawyers were providing legal counselling to interested applicants at CLC premises, but also through phone and email.
Civil Rights Project Sisak were also providing legal support to applicants for international protection (counselling and representation).[23]
Centre for Peace Studies (CPS) provided free legal assistance to applicants for international protection in CPS premises but also online, by e-mail, and by telephone. As part of the free legal aid program, a training session was also held in December 2024, during which Turkish-speaking applicants for international protection were informed about the procedure for international protection, acquiring the right to work, labor rights, and mechanisms for reporting irregularities. In addition, CPS carried out other activities such as two Croatian language courses at A1 level intended for applicants for international protection, persons granted international protection, and foreign workers. Each course cycle lasted three months, with a total of 11 participants. In addition to regular classes, which were held twice a week, each participant had the opportunity to receive additional individual language support provided by volunteers. This allowed them to further practice their acquired knowledge, improve their language skills, and adapt more quickly to everyday communication in Croatian. Furthermore, CPS’ volunteers continued to provide regular one-on-one language support for beneficiaries who did not attend the course, thereby ensuring ongoing assistance in language learning and social integration.[24]
In 2024, the Jesuit Refugee Service (JRS) carried out the following activities with applicants for international protection: free legal assistance; mediation in the process of employment of applicants for international protection and integration into the local labour market. Applicants for international protection turned to JRS also because of problems with employers, non-payment of wages, discrimination in the workplace, as well as due to ambiguities regarding the procedure and duration of procedure for international protection. They also seek legal advice on the possibility of transitioning from the status of applicant for international protection to a status based on a work permit, as well as support regarding language learning.[25]
In 2024, the UNICEF Office for Croatia, together with their implementing partners and with the financial support of the State Secretariat for Migration of the Swiss Confederation, carried out activities within the programme “Support to Children and Families in Migration in the Process of Protection and Integration in Croatia”. The activities focused on families and children seeking international protection and included support in the areas of child protection and guardianship for unaccompanied minors, integrated mental health and psychosocial support for the most vulnerable children, adolescents and refugee parents/caregivers in migration, integration measures in school settings and local communities for migrant children, as well as ensuring timely identification and appropriate support in accessing inclusive and quality early childhood services in the community (particularly early and pre-school education and early childhood development support services). Most activities were aimed at strengthening the capacities of professionals within the education, social welfare and interior affairs systems, as well as civil society organizations. In addition, some activities were directly implemented at the Centre for the Provision of Community Services Zagreb–Dugave, a social welfare institution that provides accommodation to the largest number of unaccompanied children.[26]
Duration of stay in the centres
According to information from the Croatian Red Cross, during 2024 a large number of applicants for international protection stayed in Reception Centre for Applicants for just a few days, while there were also those who stayed for less than 24 hours,[27] so in 2024 Croatia was still perceived as a transit country.
In the regular procedure, applicants can be accommodated at a Reception Centre until the completion of the procedure and a final decision is taken on their case (at first instance and during the administrative dispute). When a final negative decision on the application for international protection has been taken and the time for executing the order to leave the country has elapsed, the right to receiving reception conditions ends.
[1] Ombudswoman: Report of the Ombudswoman for 2024, page 173, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144/.
[2] Information provided by AYS, 15 January 2025.
[3] Ombudswoman: Report of the Ombudswoman for 2024, page 171, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144/.
[4] Ombudswoman: Report of the Ombudswoman for 2024, page 170 and 231, available at: https://www.ombudsman.hr/hr/download/izvje-e-pu-ke-pravobraniteljice-za-2024-godinu/?wpdmdl=20339&refresh=67efca50785f31743768144.
[5] 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.
[6] Information provided by Croatian Red Cross, 20 January 2025.
[7] Information provided by UNICEF Office for Croatia, 22 January 2024.
[8] Information provided by UNICEF Office for Croatia, 4 February 2025.
[9] Ministry of Interior, Applicants for international protection in the Republic of Croatia are not infected with the coronavirus, 18 March 2020, available in Croatian at: https://bit.ly/3xgvIOf.
[10] Information provided by Centre for Peace Studies, 27 February 2025.
[11] Article 56(8) LITP.
[12] Information provided by the Croatian Red Cross, 18 March 2019.
[13] Information provided by the Croatian Red Cross, 18 March 2019.
[14] Article 20 Ordinance on the Realisation of Material Reception Conditions.
[15] Information provided by the Croatian Red Cross, 18 March 2019.
[16] Information provided by the Croatian Red Cross, 20 December 2019.
[17] Information provided by the Croatian Red Cross, 20 January 2025.
[18] 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.
[19] Information provided by the Croatian Red Cross, 20 January 2025.
[20] Information provided by UNICEF Office for Croatia, 4 February 2025.
[21] Information provided by Are You Syrious, 15 January 2025.
[22] Information provided by Borders: None, 12 March 2025.
[23] Information provided by Civil Rights Project Sisak, 15 January 2025.
[24] Information provided by Centre for Peace Studies, 27 February 2025.
[25] Information provided by Jesuit Refugee Service, 15 January 2025.
[26] Information provided by UNICEF Office for Croatia, 4 February 2025.
[27] Information provided by Croatian Red Cross, 20 January 2025.