Croatia is strongly committed to support its 22 recognised national minorities, but further steps are required to promote intercultural dialogue and to address the too high threshold for public use of minority languages, the underrepresentation of national minorities in state bodies and judicial institutions and continued discrimination against Roma.

These are key findings of a new opinion published today by the Advisory Committee of the Council of Europe Framework Convention for the Protection of National Minorities. The comments by the Croatian authorities have also been published.

Robust legal framework and positive policy developments

Croatia’s commitment to supporting its national minorities is reflected in its robust legal framework, including laws on anti-discrimination, the teaching of and in national minority languages, and on targeted minority policies. Funding for cultural autonomy, which supports minority associations and institutions in culture and education, has increased. Special bodies, like the Council for national minorities, are tasked with facilitating the participation of national-minority representatives in decision making.

The committee notes the solid work of the ombudsperson’s office in promoting human rights, including the rights of individuals affiliating with national minorities, which enjoys credibility and public trust. The authorities have taken various policy measures, such as the adoption of plans for Roma inclusion, and provided increasing financial resources to implement them.

National-minority awareness lacking

While efforts to support minority cultures are commendable, many activities are largely focused on folkloristic expressions of minority identities, which may not sufficiently promote public awareness about all national minorities, their history and contribution to the Croatian society. Uneven awareness contributes to significant disparities in the enjoyment of rights by individuals affiliating with national minorities in the country.

Croatia’s latest 2021 census indicates a notable overall population decline, including among national minorities. The largest drop (33,6%) was observed among the Serbs, the biggest minority in the country. The advisory committee is concerned that certain provisions of the new Act on the central population register adopted in March 2025 may risk excluding individuals affiliating with national minorities from the register.

Intolerance and historical revisionism worrying

The advisory committee regrets that despite government efforts, manifestations of intolerance and hostility persist. Historical revisionism, the trivialisation of war crimes, and the public glorification of convicted war criminals are likewise worrying, the committee notes. These patterns are reflected in exclusionary rhetoric in public discourse, targeting several groups, such as the Roma and the Serb national minority.

As a priority recommendation, the Croatian authorities are urged to intensify their efforts to promote a spirit of tolerance, intercultural dialogue, mutual respect and understanding among all people living in Croatia, including the Serbs and the Roma. Instances of hostility against individuals affiliating with minorities occurred and were publicly and unequivocally condemned by the authorities, and the Advisory Committee calls on the authorities to continue doing so.

Barriers to introducing minority languages into public use remain

The Committee reiterates its long-standing concern that the existing threshold for the equal official use of minority languages in contacts with local public authorities and in the display of street names and public buildings signage (a minimum of 33% of minority representatives in the total local population) remains excessively high and hinders the full enjoyment of language rights, particularly regarding the use of the Cyrillic script. The committee again urges the authorities to lower substantially the threshold, and to ensure that the relevant legal provisions are duly implemented by all local authorities.

National minorities remain significantly underrepresented in state bodies and judicial institutions, despite the legally possibly preferential treatment for their employment.

Persistent discrimination against Roma should end

A priority concern for the committee is the fact that the Roma continue to face limited access to quality education, high unemployment, substandard housing and health disparities and persistent discrimination in private and in public. It calls on the authorities, in close cooperation with parents and Roma minority representatives to further implement measures to end school segregation, such as a comprehensive desegregation policy with clear targets, sufficient resources, precise timetables and a monitoring mechanism for its implementation.

 The Framework Convention for the protection of national minorities and Croatia