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RR RUEHAG RUEHAST RUEHDA RUEHDBU RUEHDF RUEHFL RUEHIK RUEHKW RUEHLA
RUEHLN RUEHLZ RUEHNP RUEHPOD RUEHROV RUEHSK RUEHSR RUEHVK RUEHYG
DE RUEHVB #0081/01 0441239
ZNR UUUUU ZZH
R 131239Z FEB 09
FM AMEMBASSY ZAGREB
TO RUEHC/SECSTATE WASHDC 8996
INFO RUEHZL/EUROPEAN POLITICAL COLLECTIVE
RUEBWJA/DEPT OF JUSTICE WASH DC
RUEAHLC/HOMELAND SECURITY CENTER WASHINGTON DC
RUEHC/DEPT OF LABOR WASHINGTON DC
RUEATRS/DEPT OF TREASURY WASH DC

UNCLAS SECTION 01 OF 10 ZAGREB 000081 
 
SIPDIS 
SENSITIVE 
 
DEPT FOR G/TIP, G-ACBlank, INL, DRL, PRM, IWI, EUR/PGI 
DEPT PASS USAID 
 
E.O. 12958: N/A 
TAGS: PHUM KTIP PGOV KCRM KWMN SMIG KFRD ASEC PREF ELAB
HR 
SUBJECT: ANNUAL ANTI-TRAFFICKING IN PERSONS (TIP) REPORT FOR 
CROATIA 
 
ZAGREB 00000081  001.2 OF 010 
 
 
 
Sensitive but unclassified; please handle accordingly. 
 
¶1. (SBU) Post is pleased to submit the Annual Anti-Trafficking in 
Persons Report for 2008.  Croatia has previously been ranked as a 
Tier 1 country. Post believes that Croatia has maintained its 
efforts to meet Tier 1 status, and post strongly recommends 
retaining the Tier 1 ranking for 2008.  The Government of Croatia 
has demonstrated strong political will to combat Trafficking in 
Persons and has continued to strengthen its legal framework to both 
protect victims and criminalize traffickers. In 2008 Croatia has 
made progress in areas where it has historically been weak, namely 
in the area of conviction and sentencing. The government continued 
to increase the number of sentences issued against traffickers, and 
in 2008 the government sentenced one offender to eight years 
imprisonment. This is by far the harshest penalty issued in Croatia 
against a trafficker and is close to the maximum sentence allowed 
under Croatian law. The government has also continued its aggressive 
anti-trafficking training for government officials and proactive 
efforts to raise public awareness. 
 
¶A. Sources of available information on trafficking in persons 
include the Government Office of Human Rights, Ministry of Interior, 
Ministry of Foreign Affairs, Ministry of Health, and Ministry of 
Justice. Non-governmental sources include the Croatian Red Cross, 
the International Organization for Migration, and a network of 11 
NGOs that works towards the prevention and elimination of 
trafficking of women (PETRA network). The media also serves as a 
source of information on TIP. All of these sources provide reliable 
information. 
 
¶B. Croatia is considered a country of origin, transit and 
destination for internationally trafficked, men, women and children. 
 Trafficking does occur within the country's borders. All of the 
territory belonging to Croatia is under the government's control. 
Historically victims are trafficked from Southeastern Europe, 
through Croatia, and on to member countries of the European Union 
for sexual or labor exploitation. However, in 2008 all identified 
trafficking victims were exploited within Croatia. This prima facie 
evidence would indicate that Croatia has increasingly become a 
country of destination. 
 
The government identified seven trafficking victims in 2008. Four 
victims were Croatian citizens, two were from Bosnia Herzegovina, 
and one was from Serbia. Of the seven victims identified, three were 
male and four were female.  The three male victims were exploited 
for the purpose of labor. Two victims were forced to work as 
shepherds and the other worked as a farm hand. Three female victims 
were sexually exploited, while one female victim was exploited both 
for labor purposes and sexual purposes. Though this final victim was 
found being exploited in Croatia, she reported also being exploited 
previously in Austria. The increase in the number of male victims, 
the increase in the number of victims being exploited for the 
purposes of labor, and the fact that Croatia was a country of 
destination for all the victims are all changes from last year's TIP 
report. 
 
Additionally, both the government and the Croatian Red Cross believe 
Croatia is no longer an attractive transit route to the EU for 
Romanians, Hungarians, Ukrainians, Moldovans and other Eastern 
Europeans due to the accession of Bulgaria and Romania into the EU 
in 2007. They believe routes through Romania, Bulgaria and Hungary 
and on to the western part of the EU are now more attractive and 
easier for traffickers. All victims identified this year were from 
South Eastern Europe. 
 
¶C. Victims are subject to violence, intimidation, withholding of 
documents, and threats by traffickers.  The majority of victims, 
both foreign and national, reported poor living and working 
conditions and suffered physical and/or sexual abuse, as well as 
psychological abuse, in the process of trafficking. 
 
¶D. Young women between the ages of twenty and thirty continued to be 
most at risk for being trafficked, though there was a noticeable 
increase of male victims trafficked for the purpose of labor in 
¶2008. The International Organization for Migration also believes 
that the high number of illegal migrant workers entering Croatia 
each year indicates an increased vulnerability to trafficking for 
this population. 
 
¶E.  Anecdotal information indicates that international organized 
crime groups, local groups, and travel or marriage agencies were 
responsible for trafficking. Victims usually travel with legal 
 
ZAGREB 00000081  002 OF 010 
 
 
documents, although some are falsified.  Unofficial sources indicate 
that trafficked victims are mostly recruited through fraud and 
promises of well-paying jobs abroad.  The methods of recruitment are 
numerous and diverse: abduction, extortion, false promises, 
fictitious marriages, bogus adoption agencies, seduction, the 
issuance of false certificates required for student visas, business 
offers, etc. 
 
¶2. (SBU) SETTING THE SCENE FOR THE GOVERNMENT'S ANTI-TIP EFFORTS: 
 
¶A. The government acknowledges that there is a trafficking problem 
in the country. 
 
¶B. The lead agency for monitoring anti-trafficking efforts is the 
Government Office of Human Rights; the head of which also serves as 
GOC Anti-Trafficking Coordinator. In addition, the Ministry of 
Interior, Ministry of Foreign Affairs, Ministry of Health, and 
Ministry of Justice are also actively involved in anti-trafficking 
efforts. 
 
¶C. There are few limitations on the government's ability to address 
the problem of trafficking in persons. Funding is more than adequate 
and the GOC budget dedicated for TIP activities in 2008 was 
9,022,582 HRK (1.6 million USD). A backlog in the judicial system 
can hamper speedy court decisions in all cases, including TIP cases. 
However, in 2008 there was a significant reduction in the number of 
cases waiting to be heard. 
Additionally, the lack of a unified database of both victims and 
perpetrators amongst all governmental players (Government Office for 
Human Rights, Ministry of Interior, State Prosecutors Office, 
Ministry of Health and Social Services, local police, etc.) makes 
information sharing more difficult than need be. 
 
¶D. The GOC systematically monitors anti-trafficking efforts through 
its Anti-Trafficking Coordinator, the Head of the Office of Human 
Rights, who is responsible for coordinating all GOC activities and 
developing an annual operation plan. The GOC's National Committee 
for the Suppression of Trafficking consists of members from relevant 
ministries, as well as representatives from the State Prosecutor's 
Office and NGOs.  The committee has a smaller working group, which 
includes representatives of NGOs, and meets regularly to discuss 
specific TIP cases and programs.  TIP-related information is made 
available publicly through the Office for Human Rights website, as 
well as via domestic and regional seminars. The GOC also cooperates 
closely with the Southeastern European Cooperative Initiative (SECI) 
and Interpol on investigations and prosecutions. 
 
¶3. (SBU) INVESTIGATION AND PROSECUTION OF TRAFFICKERS 
 
¶A. Croatia has a provision in the Penal Code which specifically 
prohibits trafficking in persons, both for sexual and non sexual 
purposes. The Criminal Provision 175 in the Croatian penal Code 
titled 'Human Trafficking and Slavery' enacted in 2004 prescribes 
penalties for labor exploitation such as forced labor, bonded labor 
and involuntary servitude. In June of 2006 a paragraph was 
introduced in article 175 that allows prosecution of persons who 
knowingly use services of the trafficked victims, with sentences 
ranging from 3 months to 3 years. On December 15, 2008 the code was 
again amended to include mandatory sentencing of at least five years 
if a state official is involved in trafficking. Apart from this TIP 
specific legislation, the Penal Code includes provisions providing 
penalties for related criminal acts such as international 
prostitution, illegal transfer of persons across the state border 
and pandering. In addition to criminal procedures against 
traffickers, victims can also initiate civil litigation against and 
request compensation from traffickers. The laws cover both internal 
and transnational forms of trafficking. 
 
¶B. The prescribed and imposed penalties for trafficking people for 
sexual exploitation range between one and ten years imprisonment. In 
cases where a TIP crime is committed against a minor the minimum 
sentence is five years. In cases where a state official is involved 
in the trafficking case the minimum sentence is five years. If the 
crime is committed within a criminal group or against a large number 
of people or causes the death of one or more persons, penalties 
provide for a minimum of five years to long term imprisonment. 
 
¶C. The prescribed and imposed penalties for trafficking for labor 
exploitation such as bonded labor and involuntary servitude range 
between one and ten years in prison. The law provides for criminal 
punishment for labor recruiters who engage in recruitment of 
laborers using knowingly fraudulent or deceptive offers that result 
in workers being trafficked. There are also laws punishing employers 
 
ZAGREB 00000081  003 OF 010 
 
 
or labor agents who confiscate workers' passports or travel 
documents, switch contracts without the worker's consent as a means 
to keep the worker in a state of service, or withhold payment of 
salaries. Trafficking in Persons for the purposes of labor is 
typically prosecuted under Criminal Provision 175 of the Croatian 
Penal Code titled 'Human Trafficking and Slavery', thus resulting in 
more stringent sentences.  Apart from the Criminal Provision 175, 
labor violations can also be prosecuted under the relevant Labor 
Law.  As legal "written contracts" between an employee and an 
employer are obligatory in Croatia, under applicable Labor Law the 
lack of a contract can also technically be considered a misdemeanor 
and fined up to 30,000 Kuna (6,122 USD). 
 
¶D. The minimum sentence for rape is one year, while penalties for 
rape and forcible sexual assault are generally as stringent as the 
penalties for trafficking for commercial sexual exploitation. 
 
¶E. Law Enforcement Statistics 
 
In 2008 the police filed criminal charges against 15 people for 
trafficking in persons. Thirteen of those charged were later 
indicted. Five persons were charged with labor trafficking, while 
the rest were reported and charged for sexual exploitation. Final 
verdicts were given against 12 persons in 2008, though the crimes 
committed took place between the years of 2005 and 2008. In one case 
the perpetrator was extradited to Serbia for prosecution. In another 
case the perpetrator was a minor and in accordance with Croatian law 
he cannot do prison time. He was sent to a home for juvenile 
delinquents. In a third case the perpetrator was a citizen of Serbia 
and was sentenced in absentia to six years of prison. In the other 
nine cases the sentences ranged from one year to eight years. The 
government did not report any suspended sentences in 2008. All 
crimes were investigated and prosecuted under Criminal Provision 175 
in the Croatian penal code titled 'Human Trafficking and Slavery.' 
 
¶F. Throughout 2008 the government implemented educational workshops 
for its officials, including social workers, diplomatic and consular 
staff, judges, prosecutors, police and students. During the year the 
Ministry of Interior trained 2,372 police officers. Of the total 
number trained, 1,476 officers were trained through various programs 
of the Police Academy. In cooperation with the Austrian Development 
Agency (ADA) 63 participants - officers dealing with a wider range 
of criminal activities such as minor offenders, organized crime, sex 
crime and border police - were trained. The officers took part in 
seminars on strategic analysis of TIP cases and the link between 
organized crime and TIP. Another 42 students were trained on TIP as 
part of specialist undergraduate studies. Apart from the Police 
Academy programs the Ministry of Interior's Criminal Police and the 
Border Administration facilitated TIP educational training for 897 
police officers. In cooperation with International Organization for 
Migration (IOM) and the British government, the government completed 
education for 27 border police officers. Police officers also 
participated with IOM in production of educational films which are 
used at the Police Academy and for the undergraduate study of 
Criminology. Further, another 26 police officers involved in 
suppression of organized crime and assigned to follow TIP, continued 
to train other police officers on how to recognize and deal with the 
victims of trafficking. To address concerns about prostitution and 
potential TIP during the tourist season along the Adriatic coast, 
the Government held four seminars in Rijeka and Split on the 
suppression of TIP and assisting TIP victims.  130 police officers, 
prosecutors, and civil servants from the Ministry of Health and 
Social Care, and NGOs were trained. 
 
In June 2008 the government completed a one-year, 1 million Euro 
program co-funded with the EU which trained 314 people including 
social workers, health care workers, police officials and government 
lawyers in combating trafficking in persons. 
 
In October, the Croatian Ministry for Foreign Affairs and European 
Integration and the International Organization for Migration (IOM) 
organized a one day conference entitled "The Role of Diplomatic 
Personnel in Combating Trafficking in Human Beings." The results of 
a joint capacity building project between IOM and the ministry were 
presented at the conference. The project, a key element of which was 
improving potential victim identification procedures, trained 17 
diplomatic and consular staff who further trained 60 colleagues on 
issues related to trafficking in persons. Additionally, the project 
produced information brochures in 5 different languages designed to 
help assist foreigners, visa seekers, Croatian travelers and 
potential TIP victims. The project also produced a handbook and 
curriculum for Croatia's Diplomatic Academy for further education on 
TIP issues.  As a result of the conference, consular officers at the 
 
ZAGREB 00000081  004.2 OF 010 
 
 
Croatian Embassy in Rome have produced a report which examines 
trends in Croatian visa applications from Italy and identifies key 
indicators that can be used to identify possible TIP victims. 
 
In October the government also held a three day seminar in 
Virovitica-Podravina county entitled "Strengthening Local capacity 
in Combating Trafficking in Persons." The county is located in 
northern Croatia along the border with Hungary. The seminar was held 
in cooperation with a local women's NGO. There were 50 participants 
including social and health care workers, police officials, county 
court judges, and representatives from the county government. The 
government also financed a 30,000 HRK (5,192 USD) project from the 
same NGO to promote governmental capacity building and cooperation 
with NGOs. 
 
Also in October the government organized a seminar with the 
cooperation of an NGO from the Dalmatian coastal town of Sibenik and 
trained 32 family center workers. There are ten family centers in 
Croatia established at a county level by the Ministry of Family that 
work with local families and youth in the area of therapy and 
preventions. Workers at these centers include social workers, 
lawyers, and psychiatrists. The focus of the seminar was "How to 
Recognize a Victim of Trafficking in Persons." 
 
In November the government held a training seminar on recognizing 
trafficking victims for 30 soldiers who were departing Croatia for 
tours of duty in Afghanistan. 
Additional training for another 30 soldiers also serving in 
Afghanistan was held in December. 
 
Also in November the government held a two day seminar in 
cooperation with a women's NGO from Vukovar on combating trafficking 
in persons and promoting cooperation between government institutions 
and non-governmental organizations in eastern Croatia. Vukovar is 
located along the border with Serbia. The government also financed a 
50,000 HRK (8,659 USD) project from the same NGO to promote 
governmental capacity building and cooperation with NGOs. 
 
¶G. The Croatian government continued intensive regional cooperation 
efforts in 2008 to investigate organizations believed to be involved 
in trafficking of human beings for sexual exploitation. In 2008 the 
Ministry of Interior reported working with the respective ministries 
of Macedonia, Bosnia, Slovenia, Serbia, Kosovo, Austria, Romania, 
Israel, Ukraine, Cyprus and Switzerland on TIP related activities. 
 
As part of the on-going 3,506,000 HRK (701,200 USD) EU Cards 
Twinning Project focusing on Trafficking in Human Beings, the 
Croatian police, in conjunction with the Government Office of Human 
Rights, Ministries of Interior, Health, Social Care and state 
prosecutors, participants from the German Foundation for 
International Legal Cooperation, the Ludwig Boltzmann Institute of 
Human Rights and the National TIP Coordinator, continued to 
cooperate with both short- and long-term TIP advisors from Germany 
and Austria. The fifteen-month-long project ended in June of 2008 
and was specifically designed to strengthen the capacity of national 
institutions across Croatia in combating TIP and to further assist 
the GOC in its EU wide efforts to protect the victims of trafficking 
in persons, paying special attention to children. In particular, the 
in-depth regional project had seven main components: 
-A complete review of existing legislation, structures, capacities 
and procedures to combat TIP. 
-Recommendations from both Germany and Austria. 
-Pilot testing of recommendations. 
-Further development of Standard Operating Procedures (SOPs) in TIP. 
 
-Development and implementation of a TIP training program. 
-A comprehensive and complete media campaign focusing on clients to 
reduce the demand for commercial sex acts. 
-Establishment of quality assurance system. 
The main fields of action of these seven areas were designed 
specifically to further influence Croatian criminal law, police 
measures, investigation methods, and assistance measures such as 
identification, protection of victims and victim support. 
 
In cooperation with SECI (Southeastern European Cooperative 
Initiative), INTERPOL and EUROPOL, the Ministry of Interior reported 
investigating five TIP cases, 214 cases of illegal people smuggling 
across the state border, four cases of international prostitution, 
and one case of pandering. Police also had an active role in the 
Mirage working group from the SECI regional center. 
 
The police also cooperated with INTERPOL on two long term projects: 
'Red Roots', a project which promotes the sharing of arrest warrants 
 
ZAGREB 00000081  005 OF 010 
 
 
to create a database of TIP perpetrators and the 'Women who 
Disappeared' project, a database of all women who went missing and 
are automatically checked as potential trafficking victims. 
 
As part of its presidency of the Migration, Asylum, Refugees 
Regional Initiative (MARRI Regional Forum) Croatia organized a round 
table program in April on repatriation and reintegration of victims. 
The purpose of the MARRI regional forum is to pursue regional 
cooperation in combating TIP among the member states of Albania, 
Bosnia and Herzegovina, Croatia, Macedonia, Montenegro and Serbia. 
 
In September the GOC presented at an OSCE organized seminar for 
national anti-trafficking rapporteurs from participant states in the 
Alliance Against Trafficking in Persons. The Croatian government was 
invited to present their system of reporting as an example of 
comprehensive coverage and bestpractice for the countries of the 
region.  The goal of the seminar was to support and encourage 
participating states in the implementation of commitments to fight 
TIP, while providing a venue for exchanging information, enhancing 
dialogue, and networking among national authorities working in the 
TIP area. 
 
As reported in the 2007 TIP report Croatia ratified the Council of 
Europe's "Convention against Human Trafficking" in February, 2008, 
along with 14 other countries. Within that framework an independent 
monitoring body was established to ensure all signatory bodies 
implemented the obligations contained in the convention. The 
Croatian government nominated two individuals to be a member of the 
monitoring body GRETA (Group of Experts on Action against 
Trafficking in Human Beings.) In December a Croatian professor from 
the Faculty of Law at the University of Zagreb was chosen as one of 
the experts. 
 
As part of an ICMPD (International Centre for Migration Policy 
Development) project to support the development of transnational 
referral mechanisms for trafficked persons in South-Eastern Europe, 
the government participated in a study trip to Spain to look at the 
experiences of a destination country in their efforts to combat 
trafficking in persons.  As part of the same project Croatia met in 
November with other South-East Europe anti-TIP coordinators to 
discuss activities in 2008 to suppress trafficking in persons for 
the region. 
 
Through its membership in the United Nation's Office on Drugs and 
Crime (UNODC) the Government of Croatia has actively worked on 
projects to enhance operational capacity to investigate and disrupt 
human trafficking in the Balkans. In November, the Ministry of 
Interior organized a conference in Croatia on the theme 'Exchange 
and Strengthening Actions in Investigation and Prevention of TIP in 
the Region' with participation of representatives form Albania, 
Bosnia, Macedonia, Serbia, Montenegro, SEPCA (Southeast Europe 
Police Chiefs Association) and a number of NGOs. 
 
Croatia also continued to assist Swiss police in a 2007 
international investigation codenamed "Operation Blonde" which 
resulted in the identification of eight alleged perpetrators and 
seven trafficking victims. In December 2008, the Ministry of 
Interior arranged transportation of the victims to Zurich to testify 
in the court case against the perpetrators. 
 
During 2008 Croatia extradited one TIP suspect to Serbia for trial. 
 
 
Croatia also participates in the Anti-Trafficking Unit at the OSCE 
in Vienna 
 
¶H. The Croatian constitution prohibits the extradition of its own 
nationals except in limited circumstances such as war crimes 
proceedings. The government extradited one Serbian citizen to Serbia 
for trafficking prosecution during 2008. 
 
¶I. There is no evidence of government's involvement in trafficking 
on either local or institutional levels and there is no evidence of 
government's tolerance of trafficking. An amendment to the penal 
code in 2008 mandates that any state official involved in 
trafficking must receive a sentence of at least five years. 
 
¶J. Not applicable. There is no evidence of government officials 
being involved in any form of TIP crimes. 
 
¶K. Prostitution is not legal in Croatia. Activities of prostitutes 
are treated as misdemeanors, while pandering is a criminal act. The 
activities of the brothel owner/operator, pimps and enforcers are 
 
ZAGREB 00000081  006 OF 010 
 
 
criminalized and the laws are generally enforced. Activities of 
clients are not criminalized. Knowingly using the services of a TIP 
Victim is considered a crime in Croatia and is punishable with 
sentences ranging from 3 months to 3 years 
 
¶L. There have been no occurrences of international peacekeepers from 
Croatia engaged in, or facilitating trafficking or exploiting 
victims of such trafficking. In November the government held a 
training seminar on recognizing trafficking victims for 30 soldiers 
who were departing Croatia for tours of duty in Afghanistan. 
Additional training for another 30 soldiers also serving in 
Afghanistan was held in December. 
 
¶M. The government has not identified child sex tourism as a problem, 
nor has it reported any prosecutions or extraditions of foreign 
pedophiles in 2008. Post does not believe child sex tourism is a 
problem in Croatia to date. In countries where lists of sex 
offenders are kept, Croatian law enforcement officials work through 
INTERPOL to receive notification when these offenders travel to 
Croatia and special attention is given to their cases. Croatian 
Penal Code contains provisions that punish pedophilia. Croatia's 
child sexual abuse laws have extraterritorial coverage. No nationals 
were prosecuted or convicted under the extraterritorial provisions. 
 
 
¶4. (SBU) PROTECTION AND ASSISTANCE TO VICTIMS 
 
¶A. The rights of foreign TIP victims are defined under the Law on 
Foreigners which came into effect in Croatia on January 1, 2008. The 
law stipulates a mandatory reflection period of 30 days for 
potential adult victims of TIP, and a 90 day reflection period for 
minor victims of TIP. The law specifies different forms of 
assistance which should be offered to foreign victims, including 
safe accommodation, financial support, education and training, and 
assistance with employment. Under the Law on Foreigners victims are 
to be provided with temporary and renewable residency permits, 
initially for a period ranging from six months to one year, which 
can be extended based on a subsequent needs assessment. 
 
The rights of domestic TIP victims are defined under the Law on 
Social Welfare. Domestic TIP victims have the right to safe 
accommodation, legal assistance, financial support, education and 
training, and assistance with employment. 
 
A witness protection law provides for government protection when a 
witness' life, health, freedom, or property is threatened. An office 
for protection of witnesses and victims of crime was opened at the 
Zagreb municipal court in May. The office, which is the joint 
project of the Ministry of Justice and the United Nations 
Development Program (UNDP), is intended to provide legal and 
psychological assistance to witnesses (including trafficking 
victims) at four county courts throughout the country. Red Cross 
Croatia reported that TIP witnesses received adequate police 
protection. 
 
Croatia is a signatory to the Council of Europe "Convention against 
Human Trafficking", which further introduces a period of at least 30 
days for recovery and reflection by the victims with the possibility 
of obtaining a temporary residence permit which is not subject to 
agreement by the victim to cooperate with law enforcement 
authorities. 
 
Based on recommendations from the Government Office for Human 
Rights, on December 15th, the parliament amended the Criminal 
Procedure Act to give additional rights to victims of the gravest 
crimes, which includes victims of trafficking.  Victims of such 
crimes have the right to an adviser during criminal procedures free 
of charge and the right to financial compensation for material and 
non material damages from the state budget. The amendments also 
restrict the number of interviews a victim must go through in order 
to avoid secondary victimization. The amendments expanded the 
possibility of videotaping interviews with victims also to avoid 
excess interviews and revictimization. Underage victims are granted 
a custodian, protection of their personal information, and the right 
to a non-public trial. The police, prosecution and courts have to 
treat minors with special consideration appropriate for their age 
and circumstances. 
 
¶B. The government has two specifically designated TIP shelters, one 
for adults and one for children as well as two alternative shelters 
that assist women - victims of domestic violence and former 
prostitutes. There are also three regional reception centers 
throughout the country that assist victims before they can be 
 
ZAGREB 00000081  007.2 OF 010 
 
 
transported to a shelter. Three TIP victims in 2008 used shelter 
facilities in addition to two victims from 2007. Other victims 
returned to their families.  Though there were no minor TIP victims 
found this year the shelter for children provided housing for the 
children of one of the TIP victims. Foreign victims have the same 
access to care as domestic trafficking victims. As there is only one 
adult shelter, there are no special facilities for male and female 
victims.  TIP shelters are funded by the Ministry of Health and 
Social Care and run by the Croatian Red Cross and NGOs. The 
Government spent 400,000 HRK (70,395 USD) for these shelters in 
¶2008. 
 
¶C. Trafficking victims are provided with legal, medical and 
psychological services. Victims are provided with safe 
accommodation, financial support, education and training, and 
assistance with employment. Victims who chose to cooperate with 
investigations and who act as witnesses are provided with legal 
advice and witness protection. In 2008 the government provided 
520,000 HRK (91,517 USD) to NGOs to be used for the support of 
trafficking victims. This funding came from the federal budget. 
 
¶D. The rights of foreign TIP victims are defined under the Law on 
Foreigners which came into effect in Croatia on January 1, 2008. The 
law stipulates a mandatory reflection period of 30 days for 
potential adult victims of TIP, and a 90 day reflection period for 
minor victims of TIP. The law specifies different forms of 
assistance which should be offered to foreign victims, including 
safe accommodation, financial support, education and training, and 
assistance with employment. The law stipulates that victims should 
not be deported and are to be provided with temporary and renewable 
residency permits, initially for a period ranging from six months to 
one year, which can be extended based on a subsequent needs 
assessment. 
 
¶E. There is no limit to the amount of time a victim may spend in a 
TIP shelter. Victims are offered education, training, and help with 
employment. 
 
¶F. Croatia has a national referral system employing 'mobile teams' 
through which the victims are identified and referred for 
assistance. The GOC has protocols in place for identification and 
treatment of trafficked victims: 'Protocol on Detection and Care for 
Victims of trafficking in Persons', 'Instructions for Interviewing 
Illegal Migrants and Other Persons who are Suspected Victims of 
Trafficking' and 'Rules and Procedures in Shelters'. 
In June a cooperation agreement was signed between the Ministry of 
the Interior, The Ministry of Health and Social Welfare, and two 
NGOs in order to clearly define the responsibilities of each 
signatory in regards to victim assistance.  The agreement allows 
NGOs to provide primary assistance to the victim, places the 
responsibility of safe return to the country of origin with the 
Ministry of Interior, and allows the Ministry of Health to be 
present during interviews of child victims and to provide child 
victims with a legal guardian. NGOs overall were satisfied with the 
implementation of the agreement, but initially in some cases they 
found that the Ministry of Interior had used improper methods to 
return victims to their country of origin (i.e. returning a victim 
to the border in a police vehicle). NGOs reported that they voiced 
this concern with the government and now feel that the problem is 
being addressed. Special procedures (laws and protocols) are used 
for minor victims of trafficking. Border police and other police 
officers are instructed in all protocols. Social workers also have 
special instructions on how to recognize and treat victims of 
trafficking. A trained social worker has been appointed in each of 
Croatia's 21 counties to assist TIP victims. 
 
¶G. The government identified seven TIP victims during the year. Law 
enforcement authorities referred all victims to care facilities for 
assistance per Croatian law. However, only three TIP victims in 2008 
chose to use the shelter facilities in addition to two victims from 
¶2007. The children of one TIP victim were also allowed to use the 
care facilities. All the victims have been assisted by 
government-funded assistance programs. 
 
¶H. Croatia has a national referral system, employing "mobile teams", 
through which victims are identified and referred to assistance. The 
GOC has protocols in place for the identification and treatment of 
trafficking victims: 'Protocol on Detection and Care for Victims of 
Trafficking in Persons', 'Instructions for Interviewing Illegal 
Migrants and Other Persons Who are Suspected Victims of Trafficking' 
and 'Rules and Procedures in Shelters'. Special procedures (Laws and 
Protocols) are used for minor victims of trafficking. Border police 
and other police officers are instructed in all protocols through a 
 
ZAGREB 00000081  008 OF 010 
 
 
standardized curriculum at the police academy. Social workers have 
special instructions on how to recognize and treat victims of 
trafficking. In addition, social workers have been appointed in each 
county to deal specifically with TIP victims who are minors. 
Consular officials in the Ministry of Foreign Affairs have also 
received intensive TIP training. 
 
¶I. The rights of the victims were generally respected. Trafficking 
victims were neither detained nor jailed. Victims in Croatia are not 
prosecuted for violations of other laws such as those governing 
immigration or prostitution. The GOC did not deport or punish 
victims of trafficking. While the law criminalizes international 
prostitution and unauthorized (illegal) border crossings, it exempts 
trafficking victims from prosecution. Similarly, the law allows 
authorities to charge foreign prostitutes with a misdemeanor and 
initiate deportation proceedings if they do not fulfill legal 
requirements for their stay in Croatia, but exempts trafficking 
victims from deportation and detention. 
 
¶J. The government encourages victims to assist in the investigation 
and prosecution of trafficking but does not pressure them if they do 
not wish to participate. All seven victims in 2008 assisted in the 
investigation and prosecution of traffickers. Victims may file both 
civil and criminal suits and seek legal action against traffickers. 
Victims have the right to legal assistance. In April parliament 
passed a law on Free Legal Aid which came into effect in February of 
¶2009. In addition to already existing laws guaranteeing legal 
assistance to trafficking victims the law further protects that 
right. According to the law all under-privileged citizens will be 
able to seek assistance from attorneys, NGOS and 'legal clinics' 
free of charge. Victims also have the right to press charges 
themselves and may continue to prosecute a case that has been 
dropped by the State Prosecutor. No one impedes victim access to 
legal redress. Victims who are material witnesses in a court case 
against a former employer are permitted to obtain other employment 
or leave the country pending trial proceedings. There are means by 
which a victim can obtain restitution. 
 
¶K. Please see section 3 part F, for a list of training provided to 
government officials, embassies and consulates for victim 
identification and assistance.  In 2008 no trafficking victims were 
assisted by Croatian embassies or consulates abroad because no 
Croatian trafficking victims were found outside of Croatia. All 
victims found in 2008 were found domestically. 
 
¶L. The government provides assistance, such as medical aid, shelter, 
or financial help to its nationals who are repatriated as victims of 
trafficking. In 2008 there were no cases of Croatian nationals 
repatriated as victims of trafficking. 
 
¶M. Assistance to victims of trafficking is being offered in 
cooperation with Croatian Government officials by the following 
organizations: Red Cross, International Organization for Migration 
(IOM), Organization for Integrity and Prosperity (OIP), Rosa, Korak, 
 and Women's Association of Vukovar. NGOs reported excellent 
cooperation with the Government Office for Human Rights, Ministry of 
Interior and local police officers. One NGO (Organization for 
Integrity and Prosperity (OIP) runs a shelter for victims that is 
funded by the GOC and IOM. Three NGOs run the SOS helpline for 
victims (OIP, ROSA, Women's Association of Vukovar), and two NGOs 
(Korak and Rosa) provide for victim's assistance, offering 
alternative accommodation. The Croatian Red Cross operates temporary 
reception centers for TIP victims and a shelter for adult victims of 
TIP. 
 
¶5. PREVENTION 
 
¶A. In 2008 there have been a number of high profile government-run 
anti-trafficking information and educational campaigns. In 
preparation for June's Euro Cup soccer championship the GOC produced 
and aired a nation wide television campaign alerting the Croatian 
public that individuals they see in prostitution and child labor may 
be victims of trafficking.  The campaign's slogan was "Open your 
eyes, you can help, and possibly save a human life," and was aimed 
to educate potential clients of these victims.  The advertising 
campaign featured one of Croatia's most revered and famous sports 
stars. The campaign was aired throughout the day but was also shown 
after the nightly state news program, the most watched television 
program in Croatia. 
 
As in previous years, the GOC continued to air two high quality TIP 
TV spots airing on both national and local TV stations around the 
country. Ads have been placed on trams and at train stations, and 
 
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billboards that advertise the government sponsored help line have 
been placed around the country. 
 
The Government's Human Rights Office and related NGOs organized an 
information fair held in the heart of Zagreb on Saturday, October 
18, to mark EU Anti-Trafficking Day. The event aimed to raise public 
awareness about the threat of TIP. In addition to information booths 
and informative leaflets there were also music and dance 
performances. 
 
Recognizing the need for more education for workers in the tourist 
industry on the issue of trafficking, the Ministry of Tourism and 
the Office for Human Rights organized an educational seminar for 40 
employees in the tourism sector on how to recognize victims of 
trafficking. 
The government has also been particularly engaged in educating youth 
about the threat of TIP.  The Government Office for Human Rights has 
spoken to roughly 500 students in 2008 on TIP prevention. The 
government also identified youth in orphanages as a high risk group 
for trafficking and educated 40 children and youth in orphanages on 
TIP. 
 
 
¶B. Instructions for interviewing illegal migrants and other persons 
who are suspected victims of trafficking are routinely used by 
border and immigration police and other police officers to screen 
potential trafficking victims along the borders. Croatian Consular 
Officers have received training for TIP screening as part of their 
visa issuance procedures. In addition, the International 
Organization for Migration (IOM), Ministry of Interior, and the 
British Government have produced and distributed a user friendly 
brochure and checklist specifically designed for Border Police to 
recognize the different indicators of smuggling vs. trafficking in 
persons. All border police in the country have been provided with a 
copy of this checklist. 
 
¶C. The Deputy Prime Minister, who is also responsible for social 
affairs and human rights, acts as the chairperson of the National 
Committee for Suppression of Trafficking. The head of the Government 
Office of Human Rights is the point of contact that coordinates all 
GOC activities and develops an annual operational plan. GOC's 
National Committee for Suppression of Trafficking consists of 
members from relevant ministries and representatives from NGOS. The 
committee meets periodically for information sharing and strategy 
development. In addition, the National Committee has an operational 
team that meets monthly to assess the current status of TIP in 
Croatia. The Government of Croatia has a public corruption task 
force and a National Program for Suppression of Corruption. 
 
¶D. The head of the office of Human Rights is the point of contact 
that coordinates all GOC activities and develops an annual TIP 
operational plan. The National Committee for Suppression of 
Trafficking is responsible for drafting the National Action Plan for 
Combating TIP. The national plan for 2009-2011 was developed during 
the reporting period and all agencies on the National Committee had 
input. As NGOs are members of the National Committee they were 
consulted during the creation of the plan.  The 2009-2011 plan 
covers all areas as previous national plans but it has a special 
focus on the return and repatriation of TIP victims. 
 
¶E. The government's televised ad campaign for the 2008 Euro Cup 
soccer championship was aimed at possible consumers of services 
offered in part by commercial sex workers. 
 
¶F. Croatia does not have a significant number of nationals 
traveling abroad as child sex tourists nor has it reported any 
prosecutions of Croatian nationals for participation in 
international child sex tourism during 2008. Post does not believe 
the participation of Croatian nationals in international child sex 
tourism is a problem to date. However, Croatian laws on pedophilia 
and child sexual abuse do have extraterritorial coverage and a 
Croatian national could be prosecuted for sexual abuse of a minor 
while abroad should the case arise. 
 
¶G. To date there have been no occurrences of international 
peacekeepers from Croatia engaged in, or facilitating trafficking or 
exploiting victims of such trafficking. During the year the 
government provided education on TIP for approximately 60 soldiers 
due to be deployed to Afghanistan. 
 
 
¶6. (SBU) Points of Contact 
 
 
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¶A. Embassy points of contact are Political Officer J. Nicole 
Callahan Phone: 385-1-661-2341 and Political Assistant Metka Jelenc 
Phone: 385-1-661-2353. In preparing the report, 03 PolOff spent 
approximately 40 hours and Pol Assistant spent approximately 40 
hours. 
 
Bradtke