In the parliamentary procedure on October 1, 2025, is a proposal for amendments to the Act on the Provision of Services in Tourism, which changes the rules for performing the job of a tourist guide in Croatia and systematically aligns the national framework with the obligations arising from the accession to the Organisation for Economic Co-operation and Development (OECD) and with the current rules of the European Union's internal market. This is a normative package that directly affects the competitiveness of Croatian tourism, the freedom to provide services, and the recognition of professional qualifications, but also the preservation of sensitive segments of cultural and historical heritage related to the Homeland War.
What exactly is changing: who can guide tourist tours in Croatia
The fundamental novelty is the redefinition of the circle of nationals who can provide tourist guide services. The previous solution was two-tiered: citizens of the Republic of Croatia and citizens of the European Economic Area (EEA) and Switzerland could do so unconditionally, upon fulfillment of the prescribed professional prerequisites (passed professional exam and a corresponding decision on meeting the conditions), while for citizens of so-called third countries, the possibility of working was conditioned by a registered residence in the Republic of Croatia and the fulfillment of the same professional conditions. Such a construction, although logical from the perspective of the national labor market, over time raised the question of its compliance with the principle of non-discrimination arising from the OECD Codes of Liberalisation, especially regarding the right of establishment and the cross-border provision of services.
The proposed amendments delete the residence requirement in the RH for citizens from outside the EEA and Switzerland, but at the same time introduce a clear and positive selection: in addition to Croatian and EEA/Swiss citizens, the right to provide tourist guide services is also acquired by citizens of OECD member states and states acceding to the OECD Codes of Liberalisation, provided they meet the professional requirements. This, on the one hand, corrects the existing asymmetry towards OECD citizens who are not part of the EEA, and on the other hand, maintains a high level of professional standards through exams and procedures for recognizing qualifications.
OECD, EEA, and the legal logic of liberalizing the services market
Today, the OECD is the umbrella international body whose members generally implement the principle of non-discrimination with regard to capital movements and the cross-border provision of services. The Codes of Liberalisation — including the regulation of the right of establishment and the free movement of certain services — are based on the idea that barriers are reduced to a minimum, with the possibility of targeted exemptions that must be justified and periodically reviewed. Since most EU member states are also OECD members, the Croatian framework has so far been in line with some international obligations, but outside the EEA, it created an unequal position for OECD citizens who did not come from the EEA or Switzerland.
In practice, this means that, in addition to the previous groups, the possibility of guiding tours — after meeting the professional requirements — will also be available to citizens of a number of OECD member countries that are not in the EEA, such as the United States of America, Canada, the United Kingdom, Japan, South Korea, Australia, New Zealand, Israel, Turkey, Mexico, Chile, Colombia, Costa Rica, and others. With this, Croatia removes a normative barrier that the OECD assessed as discriminatory, but at the same time does not give up on demanding professional verification of competencies through exams and the procedure for recognizing foreign qualifications.
Professional requirements remain the foundation: exam, decision, and recognition of qualifications
The proposed text retains the requirement for professional competence. A tourist guide, regardless of nationality within the prescribed groups, must meet the conditions that Croatia prescribes for this profession: pass the professional exam for a tourist guide and obtain a decision on meeting the conditions for performing the activity. This is not a formality but a test of knowledge that includes the legislative framework, knowledge of Croatian cultural and natural heritage, communication skills, and safety standards, and often specialized thematic knowledge.
It is additionally prescribed that the obligation and scope of taking the professional exam for persons seeking recognition of foreign professional qualifications for the purpose of exercising the right of establishment are determined during a special administrative procedure in accordance with the regulations on the recognition of qualifications for providing tourist guide services. Such an approach is in line with the European framework on the recognition of qualifications, where the emphasis is on the comparability of competencies and the possibility of compensatory measures if a partial inconsistency of the education and training system is identified.
Temporary and occasional provision of services and the exception for Homeland War sites
The possibility of temporary and occasional provision of tourist guide services is envisaged for citizens of the EEA and Switzerland who do not wish to permanently settle in Croatia, but want to conduct tours occasionally, for example, during the season or for specific thematic tours. Such a solution recognizes the reality of the single European market and the mobility of service providers, but with an important and clearly articulated exception.
The exception relates to protected sites related to the Homeland War. For these areas — which will be detailed in a by-law — the obligation to pass a special part of the professional exam will still apply. The reason is twofold: the necessity of a reliable, accurate, and dignified interpretation of recent Croatian history, and the additional responsibility that guides have when interpreting topics that are emotionally and socially sensitive. This symbolically, but also normatively, protects the truth about the Homeland War and guarantees that the interpretation on the ground is based on verified knowledge and clear professional standards.
Directive and domestic legal framework: recognition of qualifications and services
Alignment with EU legislation is evident through a clearer connection with regulations on services and the recognition of professional qualifications. The legal foundations that Croatia incorporates into this legislative intervention point to the obligation of non-discriminatory treatment of service providers while simultaneously preserving public interest, consumer safety, and heritage protection. Within this framework, administrative procedures must be transparent, timely, and with clear criteria, and exceptions — such as an additional exam for protected sites — must be precisely justified with the aim of protecting fundamental values.
The recognition of foreign professional qualifications remains an instrument that balances between market freedom and service quality. If the body responsible for recognition identifies differences in the education program or practice of the candidate's country of origin that could affect the quality of guiding, it can prescribe compensatory measures, which in practice most often means taking supplementary parts of the professional exam or a certain period of adaptation.
Fines: deterrent, issued in euros, and aligned with practice
To ensure the effectiveness of the new regime, the misdemeanor provisions are also being changed. Fines for the illegal provision of guide services are now expressed in euros and are increased to be truly deterrent. This addresses the practice where some unauthorized guides calculated with a low risk-reward ratio, especially at the peak of the tourist season. Stricter sanctions increase the motivation for legal work, taking exams, and transparent registration of activities, while at the same time protecting visitors from potentially inaccurate or unprofessional interpretations.
Who the changes favor, and who is worried about the new order
The profession is united on the need for a guide to be qualified and responsible, but perceptions of the market consequences of the new order are different. Domestic guides warn of the danger of disrupting the balance in destinations with a high intensity of arrivals, especially where strong international agencies are present. Their fear is that liberalization will increase pressure on prices and reduce the share of local guides in organized tours, especially in cities with high cruise traffic. On the other hand, international tour organizers claim that a uniform and predictable regime multiplies the demand for local experts, because responsible tour operators — to avoid violations and reputational risk — prefer certified guides with proven knowledge of the language, cultural context, and safety protocols.
One should also bear in mind the segment of independent travelers who increasingly choose thematic, specialized tours (architecture, modern art, sacral heritage, industrial heritage, gastronomy). In this market niche, local knowledge, authentic narratives, and the ability to adapt to the route are often crucial, so it is expected that the increase in supply will simultaneously create a greater demand for specialist licenses and thematic training.
Why it is important to "lock in" high standards now
Croatian heritage is both a resource and a responsibility. From medieval urban complexes on the coast, through Roman monuments and Illyrian legacy, to landscapes that are part of the world's natural heritage — the interpretation of this layered legacy requires competencies, current knowledge, and ethical standards. A guide is not just a "narrator" for a group of tourists: he is an educator, a mediator between the place and the visitor, and a "keeper of meaning" who decides whether the visit experience will deepen understanding or reduce it to superficial factual points. In this light, the amendments that strengthen the examination and qualification filters — while at the same time opening the door to a larger number of citizens from the OECD and the circle of accession countries to the Codes — can raise quality precisely because they focus on knowledge and responsibility, not just citizenship status.
What the procedures will look like in practice: from application to decision
The procedure will still begin by submitting an application to the competent authority. The candidate attaches proof of citizenship (RH, EEA, Switzerland, OECD, or a state acceding to the Codes) and documentation on professional qualifications, with translations and certifications when necessary. This is followed by a check of whether the candidate meets the conditions for taking the professional exam, or whether part of the exam can be recognized based on previously acquired qualifications. In the procedures for recognizing foreign qualifications, compensatory measures are possible: supplementary taking of thematic units, testing of knowledge of Croatian heritage, geography, legislation, as well as verification of language competence in accordance with the profile of the guided tours.
After successfully passing the exam, a decision on meeting the conditions is issued, by which the guide acquires the right to provide the service. For temporary and occasional providers from the EEA and Switzerland, simplified registration regimes are envisaged, but with a strict control regime for protected Homeland War sites where a special part of the exam is mandatory. Ultimately, the administrative procedures must be digitized, with clear deadlines and instructions, so that the system is equally accessible to domestic and foreign candidates.
Protected sites of the Homeland War: regulatory level and pedagogical responsibility
The new law provides that the list of protected sites will be prescribed by a by-law. It is expected to include memorial areas, museums, and memorial locations throughout Croatia, including places of destruction and suffering, but also symbols of resistance and defense. For them, an accurate, well-argued, and ethical interpretation is crucial. The special part of the professional exam — focused on the chronology, causes and consequences of the conflict, the international legal framework, terminology, and memorial practices — ensures that guides who work there possess additional, verified knowledge. Such a standard, although stricter, simultaneously protects the dignity of the historical experience and the integrity of the interpretation towards visitors from around the world.
Impact on the labor market: between liberalization and local specialization
In the short term, there may be increased competition, especially in extremely popular destinations on the coast and in cities with strong cruise traffic. However, practice shows that professionalization and clear regulation, combined with active supervision and penal policy, encourage the valorization of expertise and legitimacy. Quality-oriented agencies and platforms prefer to work with guides who have valid licenses, measurable references, and a positive track record in visitor satisfaction. This opens up space for specializations — from the interpretation of archaeological sites to contemporary culture and gastronomy — in which domestic guides have a natural comparative advantage due to their deeper immersion in the local context.
Additional security should also be provided by a clear, deterrent penal policy: when the risk of a violation is high, and on-site checks are frequent, unfair competition loses its appeal. In addition, there is increasing pressure from travel insurers and global tour operators to respect local licenses, because otherwise, they expose themselves to reputational and financial consequences in case of accidents or complaints.
Digitalization, transparency, and supervision: what an "effective framework" means
Statements from the authorities emphasize that the goal is to create an "effective framework for managing the development of tourism." In practice, this means several concrete operational measures: digitized applications and license renewals, public registers of authorized guides with areas of specialty, the possibility of mandatory identification marking during tours, and real-time channels for reporting suspicions of unregulated work. Inspection services should have clear protocols for supervision during the season and at peak visit times, especially in destinations with concentrated traffic, where violations most often occur.
Transparency is also important for consumers: accessible, easily searchable registers and standardized information forms before concluding a guiding contract (price, language, duration, route, special conditions) increase guest confidence and reduce the number of complaints. This creates an environment where we reward quality and knowledge, while the gray area — without proof of qualification and without responsibility — is left with no place in the market.
Croatia and the OECD: a broader picture than tourist guiding
Although these amendments seemingly concern only one profession, they are actually part of a broader process of aligning the Croatian economy with the rules and good practices of the OECD. The liberalization of services while preserving public interest, transparency of procedures, and non-discrimination — these are principles that are applied transversally, from financial services to professional occupations. In tourism, these principles help to remove normative barriers that are not necessary for consumer protection, while raising the bar of professionalism and responsibility where it really matters.
At the operational level, membership and compliance with OECD rules also facilitate international cooperation: common standards, a predictable regulatory framework, and the exchange of experiences between members create more favorable conditions for investments in cultural and tourism infrastructure, for the development of educational programs, and for strengthening the sustainability of destinations through smart visitor management.
What's next: by-laws, communication, and transitional periods
For the system to become fully operational, it is crucial to timely adopt the by-laws that will operationalize the most sensitive points: the list of protected sites of the Homeland War, the content and structure of the special part of the professional exam, detailed rules for the temporary and occasional provision of services, and technical standards for record-keeping and supervision. In addition to the regulations, communication with stakeholders is no less important: with guides, agencies, local communities, museum institutions, and memorial centers. Transparent, timely, and two-way communication reduces resistance, clarifies the legislator's intent, and allows for adjustments arising from experience on the ground.
Predictable transitional periods are also important. Candidates who are already in the process of recognizing qualifications need to know which provisions apply and from when; guides who plan to take the special part of the exam need to have published exam catalogs and deadlines; and supervisory bodies need a clearly defined schedule for the application of penal provisions to avoid selective or uneven application.
Language, interpretation, and standards of professional ethics
The regulatory framework does not replace professional ethics, but it gradually strengthens them. In the reality of guiding, language competence is crucial for the safety and clarity of information. For destinations where interpretation is available in multiple languages, it is encouraging to promote professional development and verified language qualifications, to avoid misinterpretations and the trivialization of important cultural and historical facts. In the context of the Homeland War, where a wrong word is often an affront to dignity, this is particularly important.
Standards of ethics in guiding — such as the verifiability of facts, a clear distinction between facts and interpretations, respect for places of remembrance, and minimizing commercial content in memorial zones — should also be reflected in the exam catalogs and in continuous professional development. This shows that the license and the exam are more than an administrative requirement: they are a social contract on the responsible transmission of the stories of places and people.
Destination management and carrying capacities
In destinations with high-intensity visits, the issue of licensed guides is related to managing visitor flows. Cities with sensitive cores and world heritage sites are faced with the challenges of carrying capacities, and quality guiding can be a tool for deconcentration: tours can be planned to distribute visits across different points of interest, introduce lesser-known content, and give a "breather" to locations suffering the greatest pressure. Licensed guides trained in sustainability interpretation can direct guests to local products and services outside the "hot zones," thereby contributing to a fairer distribution of the benefits of tourism.
It is precisely in this segment that the liberalization of access to the profession while maintaining high standards can increase the capacity of destinations to manage pressures. More qualified guides mean a larger number of smaller tours, less crowding per group, better safety in movement, and a better experience for visitors. The economy of scale is not always an ally of quality here; sometimes smaller, more professional teams with clear rules and standards are more effective than large, heterogeneous groups.
Economic effects: income, productivity, and multipliers
Tourist guiding is part of a value chain where quality interpretation can multiply spending — from museums and local crafts to hospitality and cultural events. Qualified guides who provide visitors with a meaningful context often encourage longer stays and higher spending per guest. This is an important argument in favor of professionalization: a license is not an obstacle but a guarantee of value. The increase in fines for irregular work further reduces "reputation renting," as visitors increasingly rely on verified recommendations and official booking channels.
At the macro level, compliance with OECD rules and the EU acquis sends a signal to investors and partners that Croatia is building a predictable and open system. This can encourage the development of educational centers for heritage interpretation, thematic cultural routes, and digital platforms that connect guides with visitors under clear standards of quality and safety.
What this means for future generations of guides
For young people considering a career as a tourist guide, the new rules mean a clearer path: a quality education program, a transparent exam catalog, and opportunities for specialization and mobility in an international environment. In practice, this can mean more opportunities for guest appearances in foreign markets (reciprocity of reputation), but also for acquiring specific skills (e.g., interpretation of complex historical topics, guiding at sensitive sites, inclusive guiding for people with disabilities) that the market increasingly demands.
For experienced guides, the system of professional development and the possibility of additional specialist certificates become a competitive advantage. In combination with publicly available registers and review systems, the market will discern the level of professionalism and reward excellence, while supervision and penalties will draw a clear line against unregulated practices.
Practical information and guidelines for stakeholders
- Candidates: plan timely preparation for the professional exam; ensure certified translations and complete proof of qualifications; follow the publication of by-laws on protected Homeland War sites and exam content.
- Agencies and tour operators: check the license status of guides; clearly define the language, scope of service, and responsibility in contracts; align operations with the new rules on temporary/occasional provision of services.
- Public institutions: strengthen inspection capacities during peak months; digitize registers and enable quick license checks on the ground; intensively communicate transitional deadlines.
- Local communities: get involved in defining sensitive interpretation zones and logistically support the dispersion of visitors from overloaded centers.
Additional resources for a better understanding of the framework
For a general introduction to the international rules of liberalization and the specifics of tourism services, it is useful to consult official information and overview guides on the rules, including explanations of the right of establishment, recognition of qualifications, and consumer protection standards. For practice and exam application, stakeholders will find the official forms and instructions from the competent authorities most useful. Regarding modern trends in destination management and sustainability requirements, it is also advisable to follow the development of heritage interpretation methodologies and tools for measuring the quality of guiding and visitor satisfaction.
Useful links
Creation time: 01 October, 2025