Outdated media legislation with problematic provisions, compromised independence of HRT, high frequency of SLAPPs, economic and political pressures, numerous verbal attacks on journalists from top state officials, as well as restricted access to information — these are the key findings of the recently published report by the Media Freedom Rapid Response (MFRR) international mission on the state of media freedom in Croatia.
The findings are based on a fact-finding mission conducted by the MFRR consortium in September 2024, prompted by the prolonged stagnation of media freedom in Croatia. Mission delegates met with a wide range of stakeholders, including Croatian ministries, media houses, journalists’ associations, academic community, and civil society organizations.
Media freedom in Croatia is impaired by institutional and legal challenges that several governments have failed to address, with the Media Act, adopted in 2004 and largely unchanged since, highlighted as a key problem. Current Croatian legislation does not fulfill several provisions of the European Media Freedom Act (EMFA), especially regarding the independence of the public media service, transparency of media ownership, editorial independence, and state advertising practices.
The report identifies direct political interference by state institutions in the management of HRT through politicized appointment processes of governing bodies by a simple majority in the Croatian Parliament. HRT’s independence is further undermined by stagnating fees, unchanged since 2010, and recent co-financing agreements from the state budget, potentially increasing government influence over programming.
The mission warns about the lack of political independence of the Electronic Media Council (VEM), whose members are appointed on the government’s proposal by a simple parliamentary majority for unlimited mandates. The mission also identified shortcomings in VEM’s supervision and enforcement powers, including limited ability to monitor media ownership transparency. Partners noted the problem of secret media owners, who are not obliged to be registered as beneficial owners.
The absence of rules for allocating state funds allows the government to financially reward media outlets supporting its policies and punish critical media, fostering media dependence and threatening journalistic independence. This widespread practice raises concerns under Article 25 of EMFA, which requires state advertising to be based on transparent, objective, and non-discriminatory criteria. Meanwhile, advertising spending by state-owned companies, estimated to be twice the amount of public institutions, remains largely unreported.
Additionally, Croatian legal framework contains provisions unjustifiably restricting freedom of expression by allowing powerful individuals to use laws as weapons against watchdogs, especially journalists. Broad and vague provisions permit criminal prosecution of journalists for statements deemed “untrue.” Criminal prosecutions are often paired with civil lawsuits, creating a dual burden that drags journalists into lengthy and costly legal battles. Legal threats are routinely used against critics exposing corruption, nepotism, political interference, and other abuses of power. This fosters an atmosphere of fear, obstructs journalists in their public watchdog role, and significantly limits access to reliable public-interest information. Moreover, the introduction of a new criminal offense, the so-called “Lex AP,” criminalizing unauthorized disclosure of information in criminal investigations, imposes disproportionate restrictions on freedom of expression and public access to information, discouraging lawyers, witnesses, and experts from cooperating with journalists and hindering crucial investigations.
Journalists in Croatia also face significant political pressure, especially locally, alongside a rising number of verbal and physical abuse incidents, smear campaigns, and economic hardships. The report highlights the attack on journalist Melita Vrsaljko, threats against the weekly Novosti after being labeled enemies of Croatia by the HDZ coalition partner Homeland Movement, and verbal abuse often coming from officials as the most common form of attacks on journalists. Government representatives, including high officials such as Prime Minister Andrej Plenković, have used public platforms to discredit critical media outlets such as N1, Telegram, Nacional, 24sata, and Index. This environment encourages censorship and restricts access to vital public information, alongside poor implementation of the Law on Access to Information, undermining journalists’ ability to investigate and report effectively. Public institutions exploit legal loopholes or cite confidentiality and data protection to deny access without properly balancing these factors with the public interest. Complaints to the information commissioner often take too long and rarely lead to timely resolutions. Investigative journalists, particularly those working on politically sensitive topics, face the greatest challenges affecting media freedom and the public’s right to know, the mission found.
The report also offers detailed recommendations to key decision-makers in Croatia, outlining a plan to address media freedom restrictions and initiate essential reforms.
The mission’s partners hope the insights published in the report will constructively contribute to discussions on much-needed improvements.
Mission delegates are scheduled to return to Croatia in May this year, ready to share their expertise in consultations on reforming the Media Act, implementing EMFA requirements, and developing a strong anti-SLAPP law that exceeds the EU’s minimum standards.