Introduction
A trade union is an organization of workers and employees whose primary task is to study, defend, protect, and improve the working, social, legal, and other interests and rights of its members. In modern society, the key function of trade unions is collective bargaining and the conclusion of collective agreements that regulate the rights and obligations of employees and employers. Additionally, trade unions provide legal protection to their members and work to improve working conditions. According to the Labour Act, a collective agreement may include legal rules governing the conclusion, content, and termination of employment relationships, social security issues, and other matters related to or arising from employment (Article 192 of the Labour Act, NN 93/14, 151/22, 64/23).
Trade union activities are often associated with strikes, one of the most important instruments of industrial action. A trade union is the only organization that can legally organize a strike, following the prescribed rules and procedures. Because of this, the trade union represents a central point of protection for workers’ rights. However, trade unions also play a broader social role as they are a key part of industrial democracy, contributing to the balance of power between workers and employers.
In the Republic of Croatia, as in the European Union, trade unions are most commonly organized by sectors, bringing together workers from the same or related industries, such as construction, tourism, or education. Sectoral trade unions often join larger trade union federations that represent them at the national level, as well as on the European and global stage through cooperation with international trade union organizations.
The State of Trade Unions in Croatia and Europe
A trade union is defined by its members: the larger the membership, the greater its legitimacy and bargaining power. However, trade union membership in Europe and Croatia has been declining or stagnating. Trade unions are often mistakenly perceived as outdated organizations linked to the legacy of socialism, which diminishes their role in a modern market-oriented economy. On the contrary, trade unions play a crucial role precisely in free-market conditions, where worker protection is essential.
The biggest challenges to trade union organization in contemporary society include:
- Lack of worker awareness – Workers are often not sufficiently informed about their rights and the opportunities that trade unions offer. One reason for this is the lack of education on labor rights in the education system. According to a study by Friedrich-Ebert-Stiftung and the Institute for Social Research from 2024 (Youth Study), young people in Croatia have low levels of trust in trade unions, which can be attributed to a lack of knowledge about their role and work.
- New forms of work – The emergence of atypical forms of work, such as platform work (e.g., Uber, Wolt, Glovo), student contracts, temporary employment, and fixed-term contracts, complicates trade union organization. In many cases, the legal status of workers is not clearly defined, creating opportunities for abuse and making trade union organization more difficult.
- Import of labor – In recent years, the number of foreign workers in Croatia has significantly increased. In 2024, 206,529 residence and work permits were issued, of which 132,208 were for new employment (Ministry of the Interior, Croatia, 2025). Most workers come from Bosnia and Herzegovina, Nepal, Serbia, India, the Philippines, North Macedonia, Bangladesh, Kosovo[1], Uzbekistan, and Egypt. These workers often do not speak Croatian or know their labor rights, making their unionization more challenging.
- Lack of trade union visibility – The large number of registered trade unions reduces their public visibility and affects their bargaining power. Trust in trade unions in Croatia is declining – according to a 2018 study, 10% of young people trusted trade unions, while in 2024, this number fell to 7.6% (Youth Study, 2024).
- Distinction between union members and non-members – Trade unions are funded by membership fees, but collective agreements apply to all workers employed by a given employer or in a specific sector, regardless of union membership. This practice allows “free riders” to benefit from trade union efforts without paying membership fees, reducing the motivation of workers to join.
Possible Changes and Solutions
To strengthen their position in society, trade unions should take several steps:
- Introducing education on labor rights – Labor rights and trade union activities should become an integral part of the educational curriculum in primary and secondary schools. Some trade unions already conduct educational activities in schools, which have proven beneficial.
- Better protection of workers in atypical forms of work – Trade unions, in cooperation with civil society organizations, should actively work on protecting workers in atypical employment relationships and participate in legal proceedings that will more clearly define which forms of work fall under employment relationships.
- Informing foreign workers – Translating informational leaflets and facilitating easier access to union membership could positively impact the inclusion of foreign workers in trade unions.
- Strengthening trade union visibility and the distinction between members and non-members – Trade unions should actively promote their achievements and clearly highlight the benefits of membership so that workers recognize the value of organized action.
Sources
- Croatian Encyclopedia, Miroslav Krleža Institute of Lexicography, 2025.
- Industrial Democracy, Croatian Encyclopedia, 2025.
- Youth Study in Croatia, Friedrich-Ebert-Stiftung, 2024.
- Croatian Language Portal, 2025.
- Statistical Data from the Ministry of the Interior, Croatia, 2025.
- Trade Union Rights and Constitutional Court Decisions, SHU, 2025.
- Decision U-I-242/2023 of the Constitutional Court of the Republic of Croatia.
- Labour Act, NN 93/14, 151/22, 64/23.
[1] This designation is without prejudice to positions on status, and is in line with UNSCR 1244/1999 and the ICJ Opinion on the Kosovo declaration of independence.
