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Fifth Opinion on Croatia / 1 FIFTH OPINION ON CROATIA / 1 FIFTH OPINION ON CROATIA Adopted on 1 February 2021 X FIFTH OPINION ON CROATIA / 2 ACFC/OP/V(2021)2 Published on 10 June 2021 Secretariat of the Framework Convention for the Protection of National Minorities Council of Europe F-67075 Strasbourg Cedex France www.coe.int/minorities FIFTH OPINION ON CROATIA / 3 TABLE OF CONTENTS___________________________________________________________ SUMMARY OF THE FINDINGS____________ ______________________________________ 5 Personal scope of application _____________________________________________________________________ 5 Population census ______________________________________________________________________________ 5 Legal and institutional framework __________________________________________________________________ 5 Hate speech and hate crime ______________________________________________________________________ 5 Intercultural dialogue ____________________________________________________________________________ 5 Portrayal of minorities in the media and minorities’ media _______________________________________________ 5 Policies concerning national minorities and Roma _____________________________________________________ 5 Minorities’ education, language and culture __________________________________________________________ 5 Participation in public affairs and in socio-economic life _________________________________________________ 6 RECOMMENDATIONS__________________ ______________________________________ 7 Recommendations for immediate action _____________________________________________________________ 7 Further recommendations ________________________________________________________________________ 7 Follow-up to these recommendations _______________________________________________________________ 8 MONITORING PROCEDURE______________ ______________________________________ 8 Follow-up activities related to the recommendations of the Fourth Opinion of the Advisory Committee _____________ 8 Preparation of the state report for the fifth cycle _______________________________________________________ 8 Country visit and adoption of the Fifth Opinion ________________________________________________________ 8 ARTICLE-BY-ARTICLE FINDINGS_________ ______________________________________ 9 Data collection and population census (Article 3) ______________________________________________________ 9 Legal framework for combating discrimination (Article 4) _______________________________________________ 11 Institutional framework for combating discrimination (Article 4) ___________________________________________ 13 Equality data and measures to promote full and effective equality (Article 4) ________________________________ 14 Operational Programmes for National Minorities (Article 4) _____________________________________________ 15 National Roma Inclusion Strategy (Article 4) _________________________________________________________ 15 Preservation and development of minorities’ identity, language and cultural heritage (Article 5) _________________ 16 Intercultural dialogue and mutual respect (Article 6) ___________________________________________________ 18 Hate speech and hate crime, policing and respect for human rights (Article 6)_______________________________ 19 Portrayal of minorities in the media (Article 6) ________________________________________________________ 22 Religious properties and funding of religious organisations (Article 8) _____________________________________ 23 Minorities’ printed media and broadcasting (Article 9) __________________________________________________ 24 Use of minority languages with administrative and judicial authorities (Article 10) ____________________________ 26 Display of minority language signs and topographical indications (Article 11) _______________________________ 27 Intercultural education, teacher training, textbooks and teaching materials (Article 12) ________________________ 29 Effective access to education (Article 12) ___________________________________________________________ 29 Teaching in and of minority languages (Article 14) ____________________________________________________ 31 Effective participation in public affairs and decision-making process – Parliament (Article 15) ___________________ 33 Effective participation in public affairs and decision-making process – Council for National Minorities (Article 15) ___ 34 Effective participation in public affairs and decision-making process – local and regional minority councils (Article 15) 34 Effective participation in public affairs and decision-making process – public administration (Article 15) ___________ 35 Effective participation in socio-economic life – access to employment (Article 15) ____________________________ 36 FIFTH OPINION ON CROATIA / 4 Effective participation in socio-economic life – access to health care (Article 15) _____________________________ 38 Effective participation in socio-economic life – Access to housing (Article 15) _______________________________ 39 Bilateral and multilateral co-operation (Articles 17 and 18) ______________________________________________ 41 FIFTH OPINION ON CROATIA / 5 SUMMARY OF THE FINDINGS____________ _______________________________________ Personal scope of application Portrayal of minorities in the media and minorities’ media 1. Croatia continues to apply the provisions of the Framework Convention for the Protection of National Minorities 6. Negative stereotypes in print, audio-visual and social (hereinafter “the Framework Convention”) to twenty-two media are condemned and sanctioned to an extent which is constitutionally recognised national minorities. too limited. The presence of national minorities in national radio and television broadcasts is insufficient and public Population census media lack human and financial resources to ensure 2. The system of representation of national minorities relies quantitative and qualitative media production for persons on the results of the population census, and the existing belonging to national minorities. thresholds to access some minority rights are too high and to the Policies concerning national minorities and disadvantage of numerically smaller national minorities. Trust in Roma census results is not unanimous and not all persons belonging to national minorities have confidence in the system to declare 7. In the framework of its National Roma Inclusion their ethnicity. Multiple affiliation, categorised as ‘other’ in Strategy, the Croatian Government has further implemented census results, discourages respondents from declaring their policies and programmes to improve the social inclusion of belonging to more than one ethnic group. Equality data Roma in all fields of life and conducted a Baseline Data Study disaggregated by ethnicity are, on the whole, lacking. on Roma Inclusion in the Croatian Society. Furthermore, it has adopted Operational Programmes for National Minorities Legal and institutional framework for the period 2017-2020, both a general one for the 3. The legislative framework pertaining to national minorities protection and promotion of the rights of all national is overall in conformity with the provisions of the Framework minorities, and specific ones for seven national minorities. Convention. Comprehensive anti-discrimination legislation has The adoption of these programmes has been unanimously been enacted and structures to promote equal treatment and welcomed by persons belonging to the national minorities as address individual cases of discrimination at national and it contributes to the exercise of the rights of national minorities regional levels are in place. Discrimination towards persons and increases their cultural autonomy. However, some of the belonging to certain groups persists, notably the Roma and Serb planned actions under the Operational Programmes for national minorities, including returnees. Strengthening the National Minorities lack clear indicators, timeframes or Ombudsperson’s Office and improving the efficiency of the free funding allocation. Furthermore, only a small number of the legal aid system, as well as increasing and evaluating the impact activities foreseen under these programmes have been of human rights and non-discrimination training for the law implemented so far. For the Roma national minority, new enforcement and the judiciary, would contribute to improve areas should be explored through independent research outreach to the most vulnerable groups and fight the under- under the envisaged post-2020 National Roma Inclusion reporting of discrimination cases. Strategy, such as gender inequalities and the impact of early marriages on school dropouts and absenteeism, especially in Hate speech and hate crime the transition from primary to secondary education. 4. Hate crime, as well as incidents of hate speech in the Minorities’ education, language and culture media and in the political discourse, have increased over the reporting period. The surge in radical nationalism has had an 8. The establishment of the Independent Sector for overall negative impact on the enjoyment of minority rights, National Minority Education within the Ministry of Science and particularly in heavily affected post-conflict areas. The public Education is a positive development. The authorities continue debate related to national minorities is dominated by anti- to support the promotion of national minorities’ cultural minority rhetoric and prejudice, persons belonging to the Serb autonomy and have increased state subsidies in this
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