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Final 24/03/2014 FIRST SECTION CASE OF TOPČIĆ-ROSENBERG v. CROATIA (Application no. 19391/11) JUDGMENT STRASBOURG 14 November 2013 FINAL 24/03/2014 This judgment has become final under Article 44 § 2 of the Convention. It may be subject to editorial revision. TOPČIĆ-ROSENBERG v. CROATIA JUDGMENT 1 In the case of Topčić-Rosenberg v. Croatia, The European Court of Human Rights (First Section), sitting as a Chamber composed of: Isabelle Berro-Lefèvre, President, Khanlar Hajiyev, Mirjana Lazarova Trajkovska, Julia Laffranque, Erik Møse, Ksenija Turković, Dmitry Dedov, judges, and Søren Nielsen, Section Registrar, Having deliberated in private on 22 October 2013, Delivers the following judgment, which was adopted on that date: PROCEDURE 1. The case originated in an application (no. 19391/11) against the Republic of Croatia lodged with the Court under Article 34 of the Convention for the Protection of Human Rights and Fundamental Freedoms (“the Convention”) by a Croatian national, Ms Diana Topčić-Rosenberg (“the applicant”), on 7 March 2011. 2. The applicant was represented by Mr J. Novak, a lawyer practising in Slavonski Brod. The Croatian Government (“the Government”) were represented by their Agent, Ms Š. Stažnik. 3. The applicant alleged, in particular, that as an adoptive mother she had been discriminated against in respect of her right to maternity leave, contrary to Article 14 of the Convention read in conjunction with Article 8 thereof. 4. On 5 March 2012 the application was communicated to the Government. THE FACTS I. THE CIRCUMSTANCES OF THE CASE 5. The applicant was born in 1962 and lives in Zagreb. 6. On 5 October 2006, by a final decision of the Nova Gradiška Social Welfare Centre (Centar za socijalnu skrb Nova Gradiška), the applicant adopted a three-year old child. At that time the applicant was a self- employed businesswoman living in Zagreb. 2 TOPČIĆ-ROSENBERG v. CROATIA JUDGMENT 7. On 16 October 2006 the applicant submitted a request to the Zagreb office of the Croatian Health Insurance Fund (Hrvatski zavod za zdravstveno osiguranje Područni ured u Zagrebu) seeking to establish her right to paid maternity leave. 8. On 20 October 2006 the Zagreb office of the Croatian Health Insurance Fund dismissed the applicant’s request on the grounds that under the legislation on maternity leave for self-employed entrepreneurs and unemployed mothers (“the Maternity Leave Act”), biological mothers were entitled to paid maternity leave only until the child’s first birthday, and adoptive mothers had to be treated equally. 9. The applicant lodged an appeal with the central office (Direkcija) of the Croatian Health Insurance Fund against the first-instance decision. She complained that she had been discriminated against as an adoptive mother and a self-employed businesswoman. She relied on the Labour Act, which provided that the adoptive parent of a child under the age of twelve was entitled to paid leave of 270 days, starting from the date of adoption. 10. On 21 March 2007 the central office of the Croatian Health Insurance Fund dismissed the applicant’s appeal on the grounds that the Maternity Leave Act had to be applied in the applicant’s case as a lex specialis. That Act did not provide for maternity leave to be granted to either a biological or an adoptive mother if the child was older than one year. 11. On an unspecified date in 2007 the applicant lodged a complaint with the Administrative Court (Upravni sud Republike Hrvatske), challenging the administrative bodies’ decisions. 12. On 26 November 2009 the Administrative Court dismissed the applicant’s complaint on the grounds that the administrative bodies had correctly applied the Maternity Leave Act as a lex specialis, and that under that Act she was not entitled to paid maternity leave since at the time of adoption, her child had been older than one year. 13. On 10 December 2009 the applicant lodged a complaint with the Constitutional Court (Ustavni sud Republike Hrvatske). She argued that the administrative bodies had interpreted the relevant domestic law in a manner that rendered its provisions ineffective and illusory, since it was extremely rare for somebody to adopt a child under the age of one. In her view, the purpose of paid maternity leave was to provide the adoptive parent and the child with a period of adaptation. Paid maternity leave was accessible to biological mothers after childbirth, and to employees who adopted a child under the age of twelve. In denying her that opportunity, the administrative bodies had discriminated against her as an adoptive mother and a self- employed businesswoman. 14. On 9 February 2011 the Constitutional Court declared the applicant’s constitutional complaint inadmissible as manifestly ill-founded. TOPČIĆ-ROSENBERG v. CROATIA JUDGMENT 3 II. RELEVANT DOMESTIC AND INTERNATIONAL LAW A. Relevant domestic law 15. The relevant provisions of the Constitution of the Republic of Croatia (Ustav Republike Hrvatske, Official Gazette nos. 56/1990, 135/1997, 8/1998 (consolidated text), 113/2000, 124/2000 (consolidated text), 28/2001 and 41/2001 (consolidated text), 55/2001 (corrigendum), 76/2010, 85/2010) read as follows: Article 14 “Everyone in the Republic of Croatia shall enjoy rights and freedoms regardless of their race, colour, sex, language, religion, political or other belief, national or social origin, property, birth, education, social status or other characteristics. All shall be equal before the law.” 16. At the material time the relevant part of the Labour Act (Zakon o radu, Official Gazette no. 137/2004-consolidated text) provided: Section 6 “(1) A woman in employment has the right to maternity leave during her pregnancy and while caring for her child after childbirth. (2) A woman in employment may take maternity leave 45 days before the expected date of childbirth and may remain on such leave until the child’s first birthday. ... ” Section 72 “(1) While on maternity leave, an employee has the right to an allowance under the special regulations. ... ” Section 74 “(1) The rights specified by this Act for the purpose of the protection of motherhood and bringing up of children may be exercised, under the same conditions, by an adoptive parent or by a person in whose custody the child has been placed by a decision issued by a body responsible for social welfare. (2) If the adopted child is older than the age specified in this Act but under twelve years of age, in order to exercise the rights referred to in paragraph (1) of this Article, one of the adoptive parents may take adoption leave of 270 continuous days from the 4 TOPČIĆ-ROSENBERG v. CROATIA JUDGMENT date of adoption, provided that the adoptive parent’s spouse is not the child’s biological parent.” 17. At the material time the relevant part of the Maternity Leave Act (Zakon o porodnom dopustu majki koje obavljaju samostalnu djelatnost i nezaposlenih majki, Official Gazette nos. 24/1996, 109/1997, 82/2001, 30/2004) provided: Section 2 “(1) A mother who is self-employed has the right to maternity leave during her pregnancy and while caring for her child after childbirth. ... (3) A mother who is self-employed may take maternity leave 45 days before the expected date of childbirth and may remain on such leave until the child is six months old. ...” Section 3 “(1) A mother who is self-employed and who took maternity leave under section 2 of this Act may continue to stay on maternity leave until the child’s first birthday. For twins, as well as for the third and every further child, she may stay on maternity leave until the children’s third birthday. ...” Section 6 “All rights guaranteed under this Act are applicable under equal conditions to an adoptive parent or a person to whom the competent body for social care has entrusted the care of a child.” Section 8 “(1) During maternity leave ... the persons listed under section 1 of this Act are entitled to the payment of benefits as provided for under the special regulations.” 18. On 1 January 2009 the Maternity and Parental Benefits Act (Zakon o rodiljnim i roditeljskim potporama, Official Gazette no. 85/2008) came into force, repealing the Maternity Leave Act. The latter, however, remained in force in respect of all proceedings instituted under it. 19. The relevant provisions of the Maternity and Parental Benefits Act read as follows: TOPČIĆ-ROSENBERG v. CROATIA JUDGMENT 5 Section 7 “ ... (3) The beneficiary of maternity and parental benefits is also any person who has adopted a child under the relevant law and who has health insurance, unless otherwise stipulated under this Act. ...” Section 12 “(1) An employed or self-employed mother has the right to maternity leave during her pregnancy and while caring for her child after childbirth, and may remain on such leave until the child is six months old, unless otherwise stipulated under this Act. ... ” Section 35 “(1) An employed or self-employed adoptive parent ... has the right to adoption leave under this Act. (2) The adoptive parent has the right to adoption leave from the time the decision on adoption becomes final.” Section 36 “(1) An employed or self-employed adoptive parent has the right to adoption leave of: (a) six months, for an adopted child under the age of three; (b) five months, for an adopted child between the ages of three and five; (c) four months, for an adopted child between the ages of five and eighteen. ...” B. Relevant international standards 20. The European Convention on Adoption of Children of 24 April 1967, in so far as relevant, reads as follows: Article 10 “1. Adoption confers on the adopter in respect of the adopted person the rights and obligations of every kind that a father or mother has in respect of a child born in lawful wedlock.
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