ZAÅ TITA PRAVA U BOSNI I HERCEGOVINI - Solidar

Dva pravna istraživanja o procjeni razine usklađenosti 

domaćih zakonodavstava i prakse 

sa važećim međunarodnim standardima 

 

Two legal studies to evaluate the level of compliance 

of the domestic legislations and practices 

with the applicable international standards 

Autor / Author: 

Nikolina Obradović 

Ekspert za socio-ekonomska pitanja / 

Socio-economic expert 

Saradnici / Assisted by: 

Mrs. Mira Popadić 

IRS BiH pravna savjetnica / 

IDC B&H legal adviser 

Mrs. Aida Tanović 

IRS BiH pravna savjetnica/ 

IDC B&H legal adviser 

Mišljenja izražena u ovom radu su odgovornost autora i ne odražavaju nužno 

zvaničnu politiku MPDL. / The opinions expressed in this work are the 

responsibility of the author and do not necessarily reflect the official policy of MPDL. 

Mart / March 2010

PREDGOVOR 

Ovu publikaciju bi trebalo posmatrati kao sredstvo promovisanja pristupa ekonomskim i 

socijalnim pravima, te da upozori, kako civilno društvo tako i centralne/lokalne institucije 

o potrebi za jednim ogovarajućim regulatornim okvirom koji garantuje adekvatan razvoj i 

zaštitu osnovnih prava u Bosni I Hercegovini. 

Predstavljene pravne studije su razrađene u okviru projekta “Pristup pravima 

rada na Balkanu iz regionalne perspektive” i “Restitucija prava za izgradnju mira na 

Balkanu”, finansiran od strane Advokatske komore Madrida (Španija) i španske Agencije 

za međunarodnu saradnju i razvoj, respektivno. Sredstva za objavljivanje i prezentaciju 

su također obezbjeđena od stane Univerziteta Kantabrije (Španija), koja predstavlja 

dragocjen doprinos ove renomirane akademske institucije. 

Pored objavljivanja, oba projekta obuhvataju aktivnosti vezane za pružanje 

primarne i sekundarne usluge besplatne pravne pomoći za ugrožene građane u cilju 

olakšavanja njihovog pristupa pravdi sa posebnom pažnjom usmjerenom ka pravima 

ekonomske i socijalne prirode. Pomenute usluge se ubrajaju u okvir aktivnosti projekta 

“Poboljšanje ekonomskih i socijalnih kapaciteta i jačanje produktivne mreže i 

uključenje u tržište rada, a naročito pomoć ugroženim kategorijama”, koji finansira 

španska Agencija za međunarodnu saradnju i razvoj, a implementira MPDL- Pokret za 

mir, preko svoje lokalne partnerske NVO - Inicijativa za razvoj i saradnju (IDC/IRS) Bosne 

i Hercegovine. 

Procjenu nivoa usklađenosti domaćeg zakonodavstva i prakse sa važećim 

međunarodnim standardima, odražene na obe pravne studije, je sprovedeno od strane 

gđe. Nikoline Obradović, ekspertice za ekonomska i socijalna prava, uz pomoć gđe. Aide 

Tanović i gđe. Mire Popadić, pravnih savjetnica IDC/IRS Bosne i Hercegovine. 

Autorica je koristila komparativni pristup bivajući svjesna dubine i širine prepreka 

sa kojima se suočavaju oni koji ne uživaju potpun pristup ekonomskim i socijalnim pravima, 

sa ciljem da se istaknu nedostaci zakonodavnog okvira i da se sačine odgovarajuće 

preporuke upućene javnim vlastima. 

Ova publikacija se obraća nacionalnim / međunarodnim organizacijama civilnog 

društva, istraživačima, pravnim stručnjacima, sindikatima i javnim vlastima. Studija 

također može biti od interesa za širu javnost, zbog činjenice da omogućava sagledavanje 

kompletnije slike trenutne pravne situacije u BiH u pogledu radnih i socio-ekonomskih 

prava. 

Mikel Córdoba Gavín 

MPDL Šef misije za Jugoistočnu Evropu 

Salvador Bustamante Aragonés 

MPDL Koordinator projekta za Bosnu i Hercegovinu

Sadržaj: 

Kratak pregled 7 

Radna prava u Bosni i Hercegovini 

Uvod 11 

Poglavlje I 13 

1. Opći pregled 13 

2. Trenutna situacija radnog zakonodavstva u Bosni i Hercegovini 14 

a. Prigovori 16 

b. Primjenjivost 18 

c. Uloga internih i eksternih aktera 23 

Poglavlje II 26 

1. Međunarodni mehanizmi 26 

2. Utjecaj međunarodnih organizacija / mehanizama 31 

3. Odnosi domaćih i međunarodnih aktera u pogledu uspostavljanja 

pravnog okvira radnog zakonodavstva 33 

4. Usaglašenost sa međunarodnim standardima, naročito sa praksom 

MORa o odredbama konvencija MORa 34 

Poglavlje III Konačni zaključci i preporuke 37 

Konačni zaključci i preporuke 37 

Literatura 39 

Dodatak I: Spisak relevantnih ILO konvencija ratificiranih od strane Bosne i Hercegovine 40 

Socio-ekonomska prava u Bosni i Hercegovini 

Uvod 45 

Poglavlje I 47 

1. Opći pregled 47 

2. Sadašnja situacija u vezi sa socio – ekonomskim pravima u BiH 47 

3. Pravni okvir i primjenjivost propisa 54 

4. Zaključak 57 

Poglavlje II 59 

1. Međunarodni instrumenti za zaštitu socio-ekonomskih prava 59 

2. Primjena Europske socijalne povelje u BiH 59 

3. Primjena Međunarodnog pakta o ekonomskim, socijalnim i 

kulturnim pravima u BiH 65 

4. Kako naprijed? 69 

5. Zaključak 70 

Poglavlje III Konačni zaključci i preporuke 72 

Literatura 74

Kratak pregled 

Problematka radnih i socio-ekonomskih prava predstavlja jednu od najaktualnijih 

životnih tema u Bosni i Hercegovini. Učestali radnički štrajkovi, problemi umirovljenika, 

protesti različitih skupina radi ostvarivanja radnih i socio-ekonomskih prava obilježavaju 

našu svakodnevnicu. 

Pravni eksperti „Inicijative za razvoj i suradnju“ u svom radu svakodnevno 

pomažu osobama koji vode borbu za ostvarivanje radnih i socio ekonomskih prava. 

Pisanje ovih studija je temeljeno upravo na bogatom praktičnom iskustvu pravnih 

eksperata ove organizacije. 

Ratifi ciranjem Međunarodnog pakta o ekonomskim, socijalnim i kulturnim 

pravima, revidirane Europske socijalne povelje kao i ratifi ciranjem određenih konvencija 

Međunarodne organizacije rada, primjena, osiguranje ostvarivanja i zaštita radnih i 

socio-ekonomskih prava postaje obveza države Bosne i Hercegovine i svih razina vlasti 

u državi. Cilj ovih studija je informirati sve zainteresirane o međunarodnim standardima 

u oblasti radnih i socio-ekonomskih prava na koje se Bosna i Hercegovina obvezala i 

kojima treba da teži, kao i postojećim propustima države u primjeni, osiguranju i zaštiti 

ovih prava. 

Obzirom da je jedan od osnovnih preduvjeta adekvatne razine primjene i zaštite 

radnih i socio-ekonomskih prava u društvu bolja informiranost svih građana o ovim 

pravima, studije daju osnovni pregled zakonodavstva iz oblasti rada i radnih odnosa 

i oblasti socio-ekonomskih prava, identifi cirajući najučestalije probleme u primjeni, te 

propuste u postojećem zakonodavstvu posebno s aspekta harmoniziranosti istih s 

relevantnim međunarodnim instrumentima. Također, u ovim studijama čitatelj će naći 

i relevantne odredbe koje se odnose na zaštitu radnih i socio-ekonomskih prava iz 

revidirane Europske socijalne povelje i Međunarodnog pakta o ekonomskim, socijalnim 

i kulturnim pravima na koje se Bosna i Hercegovina obvezala da će primjenjivati, 

zajedno s objašnjenjem o međunarodnim mehanizama nadzora, te načinu primjene 

međunarodnih pravnih akata i ostalome. 

Bolja primjena prava počinje sa boljom informiranosti svih nas. 


Ekspert za socio-ekonomska pitanja 

7


Uvod 

Pod radnim pravom podrazumijevamo kodeks normi i pravnih propisa koji se 

odnose na reguliranje rada i radnih odnosa. Pored domaćeg radnog prava, za svaku 

državu je značajno i međunarodno radno pravo. Osnovne postavke međunarodnog 

radnog prava su temeljene na načelima univerzalnog mira, unapređenja ekonomskog i 

socijalnog razvoja, te ideji socijalne pravde. 

Najznačajniji i ujedno i najbrojniji akti međunarodnog radnog prava su 

konvencije i preporuke Međunarodne organizacije rada, od kojih je Bosna i Hercegovina 

ratifi cirala većinu još 1993 godine (1) . Također, značajne odredbe radnog prava sadrži 

Međunarodni pakt o socijalnim, ekonomskim i kulturnim pravima, ratifi ciran od strane 

Bosne i Hercegovine odmah nakon proglašenja neovisnosti, 06. marta 1992. godine. 

Usto, kao zemlja članica Vijeća Europe, Bosna i Hercegovina je 07. oktobra 2008. 

godine ratifi cirala revidiranu Europsku socijalnu povelju, koja predstavlja temeljni pravni 

instrument ove institucije i čije odredbe imaju značaj za reguliranje rada i radnih odnosa 

svake države potpisnice. 

Potpisivanjem i ratifi ciranjem ovih dokumenata, Bosna i Hercegovina se obvezala 

na usklađivanje domaćeg zakonodavstva i prakse sa standardima defi niranim ovim 

dokumentima. Primjena, osiguranje ostvarivanja i zaštita prava po ovim međunarodnim 

normama predstavlja i jedan od uvjeta u okviru procesa pridruživanja Europskoj uniji. 


1 Vidi Dodatak I, relevantne Konvencije MOR ratifi cirane od strane Bosne i Hercegovine 

11


Poglavlje I 

1. Opći pregled 

Kada se spomene problem radnih prava onda se prvenstveno misli na 

ostvarivanje prava osoba u radnom odnosu sa poslodavcem, odnosno onih koji su 

ugovorno vezani za određenog poslodavca ili kompaniju. Općenito se smatra da radnici 

koji su ugovorno vezani za određenog poslodavca su ustvari jednim dobrim dijelom već 

ostvarili svoja prava, za razliku od onih koji “rade na crno”, odnosno nisu prijavljeni od 

strane poslodavca i samim tim su uskraćeni za ostvarivanje osnovnih prava vezanih za 

mirovinsko, zdravstveno osiguranje, pravo na plaćeni godišnji odmor, pravo na plaćeno 

bolovanje i ostalo. 

Kako zbog problema uzrokovanih ratnom destrukcijom, ekonomskom 

tranzicijom, sporom i neefi kasnom privatizacijom, Bosna i Hercegovina ima dosta 

nisku razinu zaposlenosti i ogroman broj zvanično nezaposlenih radnika koje formalna 

ekonomija još uvijek nema potencijal da apsorbira. Iz donje Tablice vidimo da svega 

36% od procjenjenog broja stanovnika radne životne dobi u Republici Srpskoj ima 

zaposlenje dok u Federaciji BiH ovaj procent iznosi 22%, što predstavlja jako nisku 

stopu zaposlenosti radnog stanovništva. 

Tablica 1: Glavni pokazatelji tržišta rada u BiH 2005. – 2008. 

2006. 2007. 2008. X-2009 

Stan. 15 – 64 FBiH* 1.576.172 1.578.223 1.580.494 1.580.494 1.579.827 

Stan. 15 – 64 RS** - 760.000 762.000 717.000 717.000 

Broj zaposlenih BiH 644.516 654.252 669.652 689.950 - 

- Federacija BiH 388.413 389.601 413.676 430.745 425.873 

- Republika Srpska 242.624 248.139 258.236 259.205 - 

Broj nezaposlenih 

BiH*** 

508.039 524.839 515.746 483.121 - 



Aktivno stan. BiH 1.152.555 1.179.091 1.185.401 1.173.071 - 

- Aktivno stan. FBiH 735.891 751.969 781.246 776.126 777.317 

- Aktivno stan. RS 384.955 392.245 392.443 392.279 

Stopa aktivnosti u FBiH 0,46 0,47 0,49 0,49 0,49 

Stopa aktivnosti u RS-u - 0,51 0,51 0,55 


13


Stopa zaposlenosti 

FBiH 

0,24 0,24 0,26 0,27 0,27 

Stopa zaposlenosti RS - 0,32 0,33 0,36 

Stopa nezaposlenosti 

FbiH 

0,22 0,23 0,23 0,22 0,22 

2006. 2007. 2008. X-2009 


RS 

vv 0,19 0,17 0,18 

*Procjena Federalnog zavoda za statistiku 

** Procjena Ankete o radnoj snazi 

*** Podaci uključuju podatke za Brčko distrikt 

Izvor: Agencija za rad i zapošljavanje BiH, Agencija za statistiku FBiH, Republički 

zavod za statistiku RS-a, Anketa o radnoj snazi (2008.) i vlastiti izračun 

Pored niske stope zaposlenosti i visoke stope nezaposlenosti (vidi Tablicu 1), 

Bosna i Hercegovina ima izuzetno nisku stopu aktivnosti stanovništva, koja u Federaciji 

BiH prema procjenama iznosi oko 49% a u Republici Srpskoj 55%. Niska stopa 

aktivnosti je jedan od glavnih indikatora visoke stope zaposlenosti u sivoj ekonomiji. 

Nije potrebno posebno naglašavati da radnici zaposleni u neformalnoj ili sivoj ekonomiji 

su uskraćeni za osnovna radna prava, najčešće su izloženi izrabljivanju i lošim uvjetima 

rada. Svjetska banka (2005) na temelju LSMS ankete procjenjuje da zaposlenost u 

neformalnog ekonomiji iznosi 37% od ukupne zaposlenosti u 2001 i 40% u 2002. 

godini. U istraživanju Tongson i Yemtsova (2005) prikazano je da procent zaposlenih u 

neformalnoj ekonomiji u periodu između 2001-04 se povećao sa 37% na 42%. Dakle, 

svako provedeno istraživanje ukazuje na izuzetno visok udio sive ekonomije i rada na 

crno u Bosni i Hercegovini. 


Uzimajući sve naprijed navedeno u obzir, nije iznenađujuće da uposlenici 

svakodnevno imaju velikih poteškoća u zaštiti i ostvarivanju svojih prava iz radnih 

odnosa. S druge strane, relikt „prvog i jedinog zapošljavanja kod jednog poslodavca 

bez otkaza“ iz prošlog sustava još uvijek je prisutan u Bosni i Hercegovini i predstavlja 

kočnicu za shvaćanje prava i obveza, pogotovu kod zaposlenika i onih koji traže 

zaposlenje 

2. Trenutna situacija radnog zakonodavstva u Bosni i Hercegovini 

Bosna i Hercegovina je složena država, Daytonskim mirovnim sporazumom 

podijeljena na dva entiteta, Federaciju BiH i Republiku Srpsku i Brčko distrikt. Prema 

14


Aneksu IV Daytonskog mirovnog sporazuma koji predstavlja Ustav Bosne i Hercegovine, 

socijalna politika i radno zakonodavstvo je stavljeno u nadležnost entiteta. U Federaciji 

BiH, prema njenom Ustavu ova oblast je u zajedničkoj nadležnosti entitetskih i 

kantonalnih razina vlasti. Dakle oblast radnog zakonodavstva je uređena propisima 

entiteta. 

U Federaciji BiH, propisi iz oblasti radnog zakonodavstva obuhvaćaju : 

• Zakon o radu Federacije BiH (Službene novine Federacije BiH 43/99, 32/00, 29/03) 

• Opći kolektivni ugovor za teritoriju Federacije BiH (Službene novine Federacije BiH, 

broj 54/05) 

• Zakon o vijeću uposlenika (Službene novine FBiH br. 38/04), 

• Zakon o štrajku (Službene novine FBiH 14/00), 

• Zakon o upošljavanju stranaca (Službene novine FBiH 8/99), 

• Zakon o posredovanju u upošljavanju i socijalnoj sigurnosti neuposlenih osoba 

(Službene novine FBiH 55 /00, 41/01, 22/05, 09/08), 

• Zakon o zaštiti na radu (Sl. list SR BiH broj 22/90) 

U Republici Srpskoj oblast radnog zakonodavstva je uređena: 

• Zakonom o radu Republike Srpske iz 2000. godine (pročišćeni tekst - Službeni 

glasnik Republike Srpske, broj 55/07), 

• Opštim kolektivnim ugovorom RS (Službeni glasnik RS broj: 27/06 i 31/06), 

• Zakon o savjetima radnika (Službeni glasnik Republike Srpske, broj: 26/01), 

• Zakon o zapošljavanju (Službeni glasnik Republike Srpske, broj: 54/05 i 64/06), 

• Zakon o zaštiti na radu (Službeni glasnik Republike Srpske, broj: 1/08), 

• Zakon o štrajku, (Službeni glasnik Republike Srpske, broj: 10/98), 

• Zakon o zapošljavanju stranih državljana i lica bez državljanstva (Službeni glasnik 

Republike Srpske, broj: 97/04, 96/05 i 123/06), 

• Zakon o profesionalnoj rehabilitaciji i zapošljavanju invalida (Službeni glasnik 

Republike Srpske, broj: 98/04 i 91/06). 

Na području Brčko Disrtikta BiH oblast radnog zakonodavstva je regulirana sljedećim 

propisima: 

• Zakon o radu Brčko Distrikta (Sl. glasnik BD, broj 19/06, 19/07 i 25/08), 

• Zakon o zaštiti na radu (Sl. glasnik BD broj, 31/05 i 35/05), 

• Zakon o zapošljavanju i pravima za vrijeme nezaposlenosti (Sl. glasnik BD, broj 

33/04, 19/07 i 25/08), 

• Zakon o zapošljavanju stranaca (Sl. glasnik BD, broj 15/09 i 19/09) 


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a. Prigovori 

Prema općem propisu o radu u oba entiteta, kolektivnim ugovorom, pravilnikom 

o radu ili ugovorom o radu ne mogu se utvrditi manja prava od prava utvrđenih općim 

propisom, izuzev ako to nije izričito predviđeno istim propisom ili nekim drugim pravnim 

aktom. Izmjenama i dopunama entitetskih zakona o radu u jesen 2000. godine, odnosno 

donošenjem novog Zakona o radu Republike Srpske, uvedene su liberalnije odredbe 

s ciljem uspostavljanja fleksibilnijeg tržišta rada. Sadašnje zakonodavstvo BiH o zaštiti 

zaposlenosti, kao i propisi o ugovorima na određeno vrijeme, su u nekim slučajevima 

liberalniji od propisa u mnogim zemljama Europske Unije. Kako se navodi u Inicijalnom 

izvještaju o primjeni Međunarodnog pakta o ekonomskim, socijalnim i kulturnim pravima iz 

januara 2004.godine, poslodavci u BiH se suočavaju sa manje proceduralnih poteškoća i 

snose slične ako ne i manje troškove otpuštanja, u smislu kako dužine otkaznog perioda, 

tako i otpremnine. Sve je ovo učinjeno sa ciljem da se stvori povoljnije okruženje za razvoj 

privatnog sektora, a na uštrb prava radnika, dok su s druge strane zadržani visoki porezi 

i doprinosi koji poskupljuju cijenu rada i mnoge poduzetnike guraju u sivu ekonomiju. 


Sadašnji Zakon o radu Federacije BiH, koji je donesen 1999. godine, je od 

tada pretrpio dosta značajnih izmjena i dopuna. Izmjenama i dopunama Zakona o radu 

iz 2000. godine brisane su odredbe vezane za obavezu sklapanja ugovora o radu u 

pismenoj formi i uručivanja istog zaposleniku koje su do tada postojale u općem propisu 

o radu. Ovim zakonskim izmjenama je predviđeno da ukoliko poslodavac ne uruči 

zaposleniku ugovor o radu u pismenoj formi, poslodavac je dužan dostaviti pismenu 

izjavu (članak 21a) u roku od mjesec dana uposleniku koji radi na neodređeno vrijeme, 

a na dan početka rada zaposleniku angažiranom na određeno vrijeme. Obveznost 

zaključivanja ugovora u pismenoj formi i dalje postoji samo kod zaključivanja ugovora o 

privremenim i povremenim poslovima (čl. 137. stav 1. Zakona o radu F BiH). Važno je 

naglasiti da ove zakonske izmjene nisu usaglašene sa propisom o matičnoj evidenciji, 

kojim se precizira da je poslodavac dužan svakog zaposlenika, odnosno lice koje 

se obvezno osigurava na mirovinsko i invalidsko osiguranje, prijaviti na osiguranje u 

roku od 8 dana, za što je potrebno priložiti ugovor o radu. Isto tako, ugovor o radu je 

neophodno priložiti i prilikom prijavljivanja na zdravstveno osiguranje. 

Također, istim Zakonom o izmjenama i dopunama Zakona o radu FBiH brisane 

su, nažalost, i odredbe o pravu zaposlenika na socijalno osiguranje, zdravstvenu zaštitu 

i ostalo, vjerojatno iz razloga što su ova pitanja regulirana posebnim propisima iz ove 

oblasti. Obzirom na raširen problem evazije doprinosa za socijalno osiguranje, odnosno 

kršenje propisa iz ove oblasti na uštrb prava radnika, neophodno bi bilo odredbe o 

16


obveznosti plaćanja socijalnog osiguranja ponovno unijeti u Zakon o radu. Važno je 

navesti da je obveza prijavljivanja zaposlenika na zdravstveno, penzijsko i invalidsko 

osiguranje, te osiguranje od nesreće na poslu defi nirano kao obavezno prema Zakonima 

o radu RS i Brčko Distrikta. 

Nadalje, izmjenama i dopunama Zakona o radu FBiH mijenjane su odredbe 

o vremenskom važenju ugovora o radu. Prema ranijim odredbama ugovor o radu se 

mogao zaključiti na neodređeno vrijeme, a samo u određenim, zakonom preciziranim 

okolnostima ugovor o radu mogao se zaključiti na određeno vrijeme. Prema sada 

važećim odredbama ugovor o radu se može zaključivati na određeno i neodređeno 

vrijeme i ova odredba se, možda, i najviše krši i zloupotrebljava od strane poslodavaca. 

Danas imamo situaciju da su ugovori na određeno vrijeme pravilo, naročito u privatnom 

sektoru pa čak i u državnim institucijama. Iako je Zakonom o radu precizirano (čl. 19. 

stav 4.) da će se ugovor o radu na određeno vrijeme koji se zaključuje uzastopno 

sa istim poslodavcem na period duži od dvije godine smatrati ugovorom o radu na 

neodređeno vrijeme u praksi je situacija sasvim drugačija i poslodavci, uglavnom, krše 

navedenu odredbu. 

Zakon o radu Federacije BiH ne poznaje obvezno upošljavanje i prijem 

uposlenika putem javnog oglašavanja slobodnih radnih mjesta. Međutim, ovaj Zakon 

se primjenjuje na radno pravni status uposlenih u nejavnom ili privatnom sektoru, a 

analogno i na pojedine javne ustanove koje posebnim propisom nisu obvezne da 

prijem uposlenika vrše putem oglasa ili konkursa. Dakle, poslodavcu je ostavljeno na 

volju da upošljava radnu snagu bez primjene instituta javnog oglasa ili konkursa ili pak 

da to čini putem njih. Dodatan problem predstavlja što ove odredbe Zakona o radu 

primjenjuje većina javnih ustanova, koje se fi nanciraju iz javnih sredstava, a nemaju 

obvezu upošljavanja novih ljudi putem javnog natječaja te to čine na netransparentan 

način. Krajnji rezultat ove odredbe je neravnopravan pristup zapošljavanju. 

Zakonom o radu Republike Srpske uređen je postupak zaključivanja ugovora 

o radu između radnika i poslodavaca, radno vrijeme radnika, odmori i odsustva, plate 

i naknade i dr. U usporedbi sa općim propisom o radu Federacije BiH, opći propis o 

radu Republike Srpske je dosta povoljniji za zaposlenike, jer su njime defi nirana prava 

na socijalno osiguranje, obaveza javnog oglašavanja prilikom upošljavanja radnika, i 

ostalo. Prema Zakonu, prava i obaveze radnika nastaju kad radnik, na osnovu ugovora 

o radu, stupi na rad kod poslodavca. Za razliku od Federacije BiH, u Republici Srpskoj 

je uručivanje ugovora o radu obavezno. Međutim, kao i u Federaciji BiH u praksi imamo 

često kršenje prava radnika od strane poslodavca. U tim slučajevima, zaposlenik ima 

pravo podnijeti tužbu sudu radi zaštite svojih prava, gdje je rok za podnošenje tužbe 

sudu u radnim sporovima 1 godina (članak 118 Zakona o radu). U praksi ovaj rok 


17


se pokazao suviše kratkim, iz razloga što uposlenici zbog svog specifi čnog položaja 

„podređenog“ tužbe podnose samo u slučaju krajnje nužde i kad iscrpe sve mogućnosti 

pregovaranja kako bi ostvarili svoja prava – u nadanjima i pregovaranju obično prođe 

više od godine. Iz ovog razloga, rok za podnošenje prijava sudu bi trebalo produžiti na 

tri godine. 

b. Primjenjivost 

Zakoni iz oblasti radnog zakonodavstva sadrže niz odredbi koje bi trebale pružiti 

djelotvornu zaštitu radnih prava. Međutim, problem u praksi predstavlja primjena gore 

navedenih propisa, a prisutna su i svakodnevna kršenja osnovnih prava zaposlenika. 

Prema izvještajima Udruženja „Inicijativa za razvoj i suradnju“, za razdoblje od 

01.04.2008 do 20.08.2009. godine, ovoj organizaciji najveći broj korisnika se javlja zbog 

povreda iz radnog prava, gdje se najčešće radi o nezakonitim otkazima i nepoštivanju 

ugovora o radu, te neravnopravnom pristupu zapošljavanju. 

− 

Nepoštivanje ugovora o radu 


Kao jedan od čestih problema kod privatnih poslodavaca, ova organizacija 

je uočila problem čestog neuručivanja ugovora o radu, što je posebno izražen 

problem u Republici Srpskoj gdje je obveza uručivanja ugovora o radu defi nirana 

općim propisom o radu. U praksi se vrlo često dešava da radnik pristane raditi kod 

poslodavca bez ugovora o radu, odnosno na osnovu usmenog ugovora. Česti su 

slučajevi da se radnik ne sjeća da li je potpisan ugovor o radu ili ne, ili nisu dobili 

primjerak istog za sebe, pa tako i ne znaju što ugovor sadrži, odnosno kakva su im 

prava i obveze. Zbog bojazni od gubitka posla radnik se najčešće ne usuđuje pitati za 

ovaj dokument. Međutim, bez postojanja ugovora o radu, radnik ne može biti prijavljen 

na socijalno osiguranje te faktički radi neregistrirano i uskraćen je za osnovna prava 

iz radnog odnosa garantirana zakonom. Treba istaći da je u RS česta praksa da veliki 

broj uglavnom privatnih poslodavaca u slučajevima kada radniku ponude ugovor o radu 

istovremeno kao prilog na potpis radniku dostave i bjanko sporazumni raskid radnog 

odnosa. To znači da poslodavac ima mogućnost u svako doba da isti iskoristi i raskine 

ugovor o radu sa radnikom bez njegovog znanja, volje niti krivice. Isto tako, vrlo čest 

slučaj je da se radniku ne uručuje primjerak potpisanog ugovora o radu, tako da radnik 

vrlo malo zna o sadržaju potpisanog ugovora. 

Nepoštivanje ugovora o radu je također učestao problem kako u privatnom 

18


sektoru tako i u poduzećima sa državnim vlasništvom. Odredbe navedene u ugovoru 

poslodavac često krši, a radnik obično prelazi preko toga, jer kod i najmanje primjedbe 

ostaje bez posla, koji poslije teško može pronaći kod drugog poslodavca. Uslijed teške 

ekonomske situacije i problema u poslovanju, a vrlo često i zbog neodgovornosti 

i bahatosti prema zaposlenicima, poslodavci često nisu u mogućnosti ili ne žele 

redovito isplaćivati plaće što povlači za sobom i neuplaćivanje doprinosa za socijalno 

osiguranje. Na ovaj način radnik ne samo da ostaje uskraćen za svoju naknadu za 

rad, zbog čega može lako doći u situaciju da ne može podmiriti svoje osnovne životne 

potrebe, nego usto on i njegova obitelj zbog problema neuplaćivanja doprinosa za 

socijalno osiguranje nemaju pravo na plaćenu zdravstvenu zaštitu, kao i ostala prava 

iz socijalnog osiguranja koja imaju više dugoročni karakter. Neuplaćivanje doprinosa 

za socijalno osiguranje može biti problem i u situacijama kada poslodavac redovito 

isplaćuje plaće. Naime, kako zaposlenicima nije omogućen sistem provjere uplate 

doprinosa za socijalno osiguranja, zaposlenik najčešće sazna za ovaj problem tek 

kada ostane bez posla i prijavi se na Zavod za zapošljavanje. Naime, zaposlenici 

kojim nije uplaćivan doprinos za osiguranje od nezaposlenosti, kada ostanu bez posla 

nemaju pravo na naknadu za nezaposlenost od Zavoda za zapošljavanje niti plaćeno 

zdravstveno osiguranje. Također, neuplaćivanje doprinosa za socijalno osiguranje 

uključuje doprinos za mirovinsko i invalidsko osiguranje. Prema propisima o penzijskom 

i invalidskom osiguranju oba entiteta u staž osiguranja se računa isključivo staž za koji 

je uplaćen doprinos. Obzirom da je uvjet za ostvarivanje prava na starosnu penziju u 

Federaciji BiH 20 godina mirovinskog staža, a u Republici Srpskoj 20 godina staža 

osiguranja, neuplaćivanje doprinosa za mirovinsko osiguranje za posljedicu može imati 

nemogućnost ostvarivanja prava na penziju ili zbog malog broja godina osiguranja i 

prijavljivanje niske osnovice osiguranja ostvarivanje najniže ili minimalne penzije, koja 

teško da može pokriti egzistencijalni minimum. 

Također, poslodavci često odluku o otkazu ugovora o radu radniku saopštavaju 

usmeno ili donose odluku o otkazu ugovora o radu koja više ima formu obavijesti nego 

odluke. U samom tekstu odluke se ne navode jasni razlozi prestanka ugovora o radu, niti 

na temelju kojih odredbi zakona i akata poslodavca, da li radnik ima pravo na otpremninu, 

bez pouke ili sa pogrešno danom poukom o pravnom lijeku. Zakon propisuje da se otkaz 

ugovora o radu mora dati u pisanoj formi uz detaljno obrazloženje razloga za otkaz i 

uz obvezno dostavljanje odluke zaposleniku. Nedostavljanje odluke o otkazu ugovora 

o radu u pisanom obliku radnika dovodi u situaciju da ne može pokrenuti određene 

postupke, niti ostvariti određena prava, na primjer korištenje pravnog lijeka, prijavu na 

Biro za zapošljavanje, podnošenje zahtjeva za ostvarivanje prava na novčanu naknadu 

za vrijeme nezaposlenosti, reguliranje prava na zdravstveno osiguranje i ostalo. 


19


− 

Zloupotreba ugovora o radu na određeno vrijeme 

Odredbe o ugovoru o radu na određeno vrijeme u praksi se često zlorabe. 

Ilustrativan primjer predstavlja slučaj korisnika „Inicijative za razvoj“ koji je radio u jednoj 

privatnoj fi rmi punih 7 godina na temelju ugovora o radu na određeno vrijeme. Firma 

ga je periodično, odnosno svake dvije godine odjavljivala sa evidencije PIO i ponovno 

prijavljivala nakon par dana, a da to on uopće nije znao. Tek po isteku posljednjeg 

ugovora o radu na određeno vrijeme kada mu je prestao radni odnos u toj fi rmi korisnik 

je shvatio kako su njegovi ugovori o radu izmanipulirani. Zakonom o radu F BiH čl. 20. 

točka 7. precizira se da se vremenski razmak od 15 dana između ugovora o radu sa 

istim poslodavcem ne smatra prekidom ugovora o radu, ali to većina poslodavaca kao i 

samih zaposlenika ne zna. Poslodavci zloupotrebljavaju ovu odredbu zbog otpremnine 

jer na taj način izbjegavaju isplatu iste. Našem korisniku nakon 7 godina neprekidnog 

rada, (prekid je bio samo formalne prirode i u kraćem trajanju od zakonom predviđenog 

u matičnoj evidenciji PIO) nije priznato pravo na isplatu otpremnine. 

− 

Problem diskriminacije 

Diskriminacija na etničkoj, rodnoj i dobnoj osnovi su najučestaliji vidovi 

diskriminacije prilikom zapošljavanja u Bosni i Hercegovini. Etnička diskriminacija 

ima svoje korijene u ratnim sukobima i prisutna je kako u javnom tako i privatnom 

sektoru. U nekim slučajevima diskriminacija djeluje kao rezultat smišljene politike, 

ili uslijed nezainteresiranosti nadležnih, da objave natječaj za radno mjesto i putem 

adekvatnog oglašavanja informiraju pripadnike svih etničkih grupa o natječaju za 

posao. U mnogim izvješćima se navodi da su povratnici najugroženija skupina što se 

tiče etničke diskriminacije prilikom zapošljavanja posebno u javnim institucijama (2) . 

Problem diskriminacije na etničkoj osnovi je manje prisutan u privatnom sektoru. 


Međutim, rodna i dobna diskriminacija je više zastupljena u privatnom sektoru 

nego prilikom zapošljavanja u javnim institucijama. Žene su posebno ranjiva kategorija 

na tržištu rada. One su često diskriminirane i na osnovu etničke pripadnosti i svoje 

dobi. U izvještaju EU o napretku BiH iz 2008. godine navodi se da „nikakve mjere nisu 

poduzete da se sagledaju problemi vezani za pristup žena tržištu rada. Kao posljedica, 

diskriminacija radnika na osnovu spola ostaje široko raširena, žene su i dalje premalo 

2 Bosna i Hercegovina: Izvještaj o implementaciji međunarodnog ugovora o ekonomskim, socijalnim i 

kulturnim pravima”, 21. Juli 2004. godine, stranica 24. 

20


prisutne u poslovanjima i politici i njihove plaće su općenito manje nego plaće 

muškaraca (3) Diskriminacija na rodnoj i dobnoj osnovi kao i diskriminacija osoba sa 

invaliditetom je više posljedica uvriježenih predrasuda i nepostojanja adekvatne politike 

od strane organa vlasti kako bi se cijelo društvo senzibiliziralo o ovim problemima. 

Anex IV Daytonskog mirovnog sporazuma, koji predstavlja ustav BiH, kao i 

entitetski ustavi (Članak II.4. Ustava BiH, Članak II.A.2 Ustava FbiH, Članak 1 i 10 

Ustava RS) zabranjuju nejednak tretman, odnosno diskriminaciju na temelju rase, 

boje kože, spola, jezika, religije, političkih ili drugih uvjerenja, društvenog statusa ili 

pripadnosti sindikatu. Zakoni o radu također zabranjuju sve oblike diskriminacije 

prilikom zapošljavanja i na radnom mjestu. Unatoč eksplicitnim zakonskim odredbama 

koje zabranjuju otkazivanje ugovora o radu ženi za vrijeme trudnoće (članak 53 Zakona 

o radu FBiH i članak 71 Zakona o radu RS) i diskriminaciju prilikom zapošljavanja, 

žena za vrijeme trudnoće rijetko dobije zaposlenje a nerijetki su i slučajevi otkazivanja 

ugovora o radu ženi za vrijeme trudnoće. Evidentno je da nepostojanje adekvatnog 

inspekcijskog nadzora i rijetko sankcioniranje poslodavaca zbog diskriminacije prepušta 

implementaciju antidiskriminirajućih odredbi zakona o radu samo savjesti poslodavca. 

− 

Problem neplaćanja prekovremenog rada 

U privatnom sektoru je dosta raširen problem neplaćenog prekovremenog rada. 

Zbog bojazni da će izgubiti posao zaposlenici se ne usuđuju odbiti da rade prekovremeno 

i ovaj rad je najčešće neplaćen. Tako, mnogi radnici često preko svoje volje rade više 

od 40 sati tjedno a da im prekovremeni rad nije ni plaćen. Prema važećim zakonskim 

propisima zaposlenik je obavezan da radi prekovremeno i to najviše 10 sati sedmično 

u slučaju više sile i iznenadnog povećanja obima posla, uz pravo na povećanu plaću. 

Međutim, iako zaposlenik ima pravo na povećanu plaću za prekovremeni rad najmanje 

30 posto od bruto satnice, za noćni rad najmanje 30 posto, rad na dan tjednog odmora 

najmanje 20 posto, te rad u dane praznika, koji su po zakonu neradni, najmanje 

50 posto od bruto satnice, u praksi se to gotovo i ne primjenjuje. Ovaj problem je 

zanemaren od strane radničkih sindikata i nadležnih inspekcija rada koji bi trebali 

raditi na identifi ciranju, a nadležne radne inspekcije na sankcioniranju neplaćenog 

prekovremenog rada i sprečavanju zloupotreba ove odredbe od strane poslodavaca. 


3 Bosna i Hercegovina. 2008 Izvještaj o napretku. Europska komisija. 05. novembar 2008. g. str. 41. 

21


− 

Članak 143. i članak 152. entitetskih zakona o radu 

Jedan od specifi čnih problema koji opterećuju tržište rada u Bosni i Hercegovini, 

odnosno njenih entiteta, predstavlja problem radnika koji su tijekom rata ostali bez posla. 

Prema odredbama entitetskih zakona o radu (članak 143 Zakona o radu Federacije BiH 

i članak 152 Zakona o radu Republike Srpske), predviđeno je da radnici koji su tijekom 

rata ostali bez posla zbog nemogućnosti dolaska i javljanja na posao, pod određenim 

uvjetima imaju pravo na uspostavu radno-pravnog statusa, odnosno naknadu na ime 

otpremnine zbog nezakonitog otkaza. Obzirom da su poslodavci odbijali odlučivati po 

zahtjevima radnika u vezi sa uspostavom radno-pravnog statusa i obračuna i isplate 

otpremnine, u Federaciji BiH je uspostavljena Komisija za implementaciju članka 143, 

dok se u Republici Srpskoj zahtjevi podnose posebno formiranom fondu uspostavljenom 

od strane Vlade RS za ovu namjenu na čiji teret pada i obveza isplate otpremnina. U 

Federaciji BiH, i pored činjenice da su zaposlenici dobivali konačne odluke komisije, 

isplata otpremnina je ponovno dovođena u pitanje, pa su zaposlenici bili prinuđeni da 

vode sudske sporove i na kraju izvršni postupak radi naplate. Međutim, u najvećem 

broju slučajeva se dešava da nadležni organi donose negativna rješenja. Usto, zbog 

dužine trajanja postupka većina radnika je prestala da ustrajava na okončanju istih 

smatrajući da je suviše vremena prošlo od kada su podnijeli zahtjeve i da se vjerojatno 

nikada neće moći namiriti. Prema sada važećoj zakonskoj regulativi kategorija radnika 

na čekanju zvanično ne postoji. 

Međutim, u praksi je situacija sasvim drugačija. Sljedeći primjer korisnice „Inicijative za 

razvoj“ dobro ilustrira problem primjenjivosti ovih odredaba: 


Korisnica se u statusa zaposlenika čekanja posla nalazi od 2001.g. i do danas 

nije riješila svoj radno-pravni status. Još uvijek je prijavljena na evidenciji PIO i 

zdravstvenog osiguranja. U sudskom registru fi rma još uvijek postoji, dakle, nije 

brisana iz registra, ali zvanično fi rma ne radi. Radna knjižica se još uvijek nalazi 

u prostorijama fi rme. Od parničnog postupka koji su pokrenuli zaposlenici te 

fi me korisnica je odustala jer nije bila u mogućnosti da snosi troškove pravnog 

zastupnika. U toku su aktivnosti na pokr etanju postupka stečaja nad fi rmom. 

− 

Zaštita na radu 

Poslodavac je dužan da osigura potrebne uvjete za zaštitu na radu kojim 

se osigurava zaštita života i zdravlja zaposlenika, da mu omogući upoznavanje sa 

propisima iz oblasti zaštite na radu te je dužan osposobiti zaposlenika na rad na način 

koji osigurava zaštitu života i zdravlja zaposlenika u cilju sprečavanja nesreće. Činjenica 

22


da se na području Federacije primjenjuje Zakon o zaštiti na radu iz 1990.g. dovoljno 

govori kakva je situacija na polju zaštite zaposlenika. Međutim, u zadnje vrijeme učinjeni 

su pomaci u ovoj oblasti, obzirom da je Vlada Federacije utvrdila Prijedlog zakona o 

sigurnosti i zdravlju na radu i uputila isti u parlamentarnu proceduru. 

Problem zaštite na radu je ogroman jer su nesreće na poslu vrlo česte, a neke od njih 

imaju fatalan ishod. Svijest poslodavaca i zaposlenika o rizicima je niska, a zbog opće 

krize zaposlenici prihvaćaju da rade u opasnim uvjetima bez adekvatne zaštite samo da 

bi osigurali plaću za sebe i obitelj. Vrlo često zaposlenici koji rade na po život opasnim 

poslovima rade na crno i nisu osigurani za slučaj nesreće, tako da se nakon nesreće 

oni i njihova obitelj suočavaju sa dodatnim problemima kako naplatiti naknadu od 

osiguravajuće kuće, odnosno naknadu štete od poslodavca. Također, usljed povrede 

na radu i posljedičnog gubitka radne sposobnosti radnici koji rade na crno ne stiču 

pravo na invalidsku mirovinu u punom iznosu kao radnici koji su socijalno osigurani. 

Sindikalne organizacije, ali i svi subjekti koji sudjeluju u uređivanju, i kontroli 

nacionalne politike o zaštiti na radu, zdravstvenoj zaštiti i radnoj okolini (država, 

poslodavci, zaposlenici i druga tijela) bi trebalo da se više pozabave ovim problemom 

te da im pitanje zdravlja zaposlenika i njihove bezbjednosti na poslu bude jedna od 

glavnih preokupacija. 

c. Uloga internih i eksternih aktera 

Prema odredbama Zakona o radu oba entiteta, zaposlenici kod poslodavca koji 

zapošljava najmanje 15 radnika, imaju pravo formirati vijeće ili savjet zaposlenika 

koji će ih zastupati kod poslodavca u zaštiti njihovih prava i interesa. Također, ovim 

zakonima je defi nirano pravo zaposlenika da organiziraju sindikat, slobodno se u njega 

učlane, kao i da istupe, a da zbog toga ne budu stavljeni u nepovoljniji položaj kod 

poslodavca. Svrha vijeća ili savjeta zaposlenika kao i radničkih sindikata je da štiti i 

zastupa interese svojih članova i svih zaposlenika kod poslodavca. 

Pravo radnika na udruživanje i kolektivno pregovaranje predstavlja model za 

izgradnju povjerenja između ove dvije na prvi pogled suprotstavljene strane – s jedne 

strane poslodavca za koga se smatra da je motiviran prvenstveno na ostvarivanje profi ta 

i s druge strane radnika koji žele što bolje uvjete na radu. Interesi ove dvije strane samo 

prividno mogu izgledati suprotstavljene. Suštinski, interes poslodavca i radnika je isti, a 

to je ostvarivanje što većeg profi ta od poslovne aktivnosti - razina poslovne dobiti često 

determinira iznos plaća, razinu i obim novih poslovnih investicija, itd. Brojne studije su 

pokazale da dinamika koja rezultira iz slobode udruživanja rezultira u poboljšanju uvjeta 

rada i time povećanju produktivnosti, dohotka i profita za sve u procesu proizvodnje. 


23


Međutim, učinkovitost sindikata i radničkih vijeća u zaštiti prava radnika je 

nedovoljna. Na žalost u Bosni i Hercegovini ne postoji tradicija niti stvarna kultura 

sindikalnog pregovaranja. Unatoč mogućnosti samoorganiziranja i postojanja 

naslijeđene sindikalne strukture većina sindikalnih organizacija postoji i djeluje kao 

recidiv socijalizma - iz vremena kada su sindikalne organizacije imale specifi čnu 

ulogu determiniranu od strane države. Glavne zajedničke karakteristike sindikalnih 

organizacija u zemlji je njihova birokratiziranost i neimanje aktivnog članstva koje bi 

makar u maloj mjeri moglo uticati na izbor i politiku svog vodstva. Ove organizacije 

nemaju „bazu“ u poduzećima tako da nije iznenađujuće da rijetko uspijevaju zaštiti 

interese svojih članova i ostalih radnika. Radnici zasad uglavnom ističu zahtjeve koji su 

vezani za ostvarenje osnovnih ekonomskih i socijalnih prava, prvenstveno onih koja se 

tiču plaća i osiguranja. Mnogi primjeri štrajkova, štrajka glađu i blokiranja prometnica od 

strane radnika upravo ukazuju na nepostojanje dijaloga i kulture pregovaranja između 

radničkih predstavnika i poslodavaca i države (u ovim situacijama država se često 

pojavljuje kao poslodavac), kao i neadekvatnu zaštitu radnika od strane sindikalnih 

organizacija. 

Uloga sindikata u uvjetima tržišnog načina poslovanja bi sigurno trebala biti 

aktivnija kada je u pitanju ostvarivanje prava zaposlenih u radnom odnosu. U vezi sa 

ovim, nužna bi bila reorganizacija sindikata, izgradnja kulture dijaloga, kolektivnog 

zastupanja i pregovaranja kako od strane radničkih predstavnika i sindikata, tako 

i od strane poslodavaca i države. Samo se putem istinski otvorenog, konstruktivnog 

dijaloga i izgradnje kulture pregovaranja može postići ekonomsko-socijalni napredak, 

te zadovoljiti interesi radnika i poslodavaca. 


Država vrši kontrolu zakonitosti rada poslodavca putem inspekcija rada i 

poreznih inspekcija. Nažalost, porezne inspekcije kontroliraju samo uplatu doprinosa 

i rad na crno, dok inspekcije rada koje bi trebale da štite prava zaposlenika uglavnom 

su nedjelotvorne. Prema navodima pravih eksperata „Inicijative za razvoj i suradnju“, 

aktivnost inspekcije rada se uglavnom svodi na provođenje inspekcijskog nadzora 

s ciljem utvrđivanja zakonitosti u radu, prilikom kojeg se napravi zapisnik gdje se 

konstatira činjenično stanje i ukoliko se utvrdi da je došlo do povreda, zaposlenik 

se upućuje na sud da u parničnom postupku ostvaruje svoja prava. Inspekcija rada 

bi trebala štiti prava radnika a ne samo provoditi striktan nadzor zakonitosti rada s 

aspekta provođenja zakona. U tom smislu bi bile neophodne izmjene zakona u pravcu 

ovlašćivanja inspekcija i omogućavanju njihove fl eksibilnosti u radu, a sve u cilju zaštite 

prava radnika. 

Prema Zakonu o radu, općinski sudovi su nadležni za rješavanje sporova iz 

radnih odnosa. Također, odredbama istog zakona određen je rok od jedne godine za 

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podnošenje prijave sudu zbog povrede prava radnika, što je dosta kratko vrijeme. Kako 

se navodi u izvještaju „Inicijative za razvoj i suradnju“ za period 01.04.08 -20.08.2009. 

godine čest problem u sudskim sporovima iz ove oblasti predstavlja problem 

nepostojanja ažurne dokumentacije o redovnom obračunu, visini i isplati plaća. Da bi 

dokazali svoje pravo, radnici su prinuđeni tražiti vještačenje na ove okolnosti, što im 

predstavlja dodatno fi nancijsko opterećenje. 

U Republici Srpskoj poznati su slučajevi da sudovi donesu odluke kojima se tužbe 

radnika koje su došle na red kasnije odbacuju kao neblagovremene, a sve u vremenu 

kada je stečajni postupak bio otvoren (trebalo je da se prekinu svi postupci na sudu i da 

se namirenje vrši u stečajnom postupku). S druge strane, sporovi za ostvarivanje prava 

iz radnog odnosa traju prilično dugo, iako je zakonom propisano da su postupci iz radnih 

odnosa hitni, sa vrlo kratkim rokovima, što u praksi nije slučaj. Upravo iz ovog razloga, 

mnogi smatraju da bi u okviru sudova trebalo formirati posebna odjeljenja za rješavanje 

radnih sporova po uzoru na neke zemlje EU. 

Kroz praksu pravnih eksperata „Inicijative za razvoj i suradnju“ uočava se 

problem diskriminacije radnika koji su protiv poslodavca pokrenuli sudski postupak 

radi naplaćivanja neisplaćenih plaća i doprinosa za socijalno osiguranje. Poznati su 

slučajevi da stečajni upravnik prizna potraživanja radnika koji nisu podnosili tužbe sudu, 

a odbije da prizna potraživanje radnika koje je Okružni sud po žalbi poslodavca odbio 

sa zahtjevom zbog neblagovremeno podnesene tužbe 2005. godine. Ovakvi primjeri 

diskriminacije i neizvršavanja obveza po ugovoru o radu su posebno zabrinjavajući. 


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Poglavlje II 

1. Međunarodni mehanizmi 

Pravne akte na kojim se temelji međunarodno radno pravo donosi Međunarodna 

organizacija rada (u daljnjem tekstu MOR), koja je vrlo složena međunarodna javna 

organizacija. Njezino se članstvo sastoji od predstavnika vlada, poslodavaca i radnika. 

MOR je formalno osnovan u okviru tadašnjeg Društva naroda, a na temelju XIII dijela 

mirovnog ugovora u Versaillesu i odredaba drugih ugovora o miru vezanih za I svjetski 

rat. Koncipiran je kao tehnička organizacija i sredstvo Društva naroda radi ostvarivanja 

općeg mira, stabilnosti i prosperiteta u svijetu. Sporazumom između MOR-a i Društva 

naroda bilo je određeno da su članovi Društva naroda ujedno i članovi MOR-a. Danas je 

MOR stalna organizacija država i broji 183 članice. Raspadom Društva naroda, MOR je 

na osnovi Povelje UN transformiran u specijaliziranu organizaciju UN. Zato je članstvo 

MOR-a povezano s članstvom UN-a. Bosna i Hercegovina postaje članicom MOR-a 

1993. godine izvjestivši Generalnog direktora Međunarodnog ureda rada o prihvaćanju 

obveza iz Ustava MOR-a. 

Najznačajnija aktivnost MOR-a je normativne prirode. Od početka svog rada 

1919. godine, usvojene konvencije i preporuke uređivale su veliki broj pitanja iz radnog 

prava te prava socijalnog osiguranja: zabrana prisilnog rada, isključenje diskriminacije, 

jednakost postupanja, sloboda udruživanja, problemi uposlenja, socijalne politike, 

pitanja kolektivnih radnih odnosa i ostalog. Bosna i Hercegovina je do danas ratifi cirala 

većinu najvažnijih konvencija MOR-a iz oblasti radnog prava, čiji pregled je dat u 

Dodatku 1. 

Pored ratifi ciranih konvencija Međunarodne organizacije rada, Međunarodni 

pakt o ekonomskim, socijalnim i kulturnim pravima kao i Europska socijalna povelja su 

najznačajniji dokumenti koji pružaju zaštitu radnih prava a koje Bosna i Hercegovina 

mora primjenjivati na cijeloj teritoriji. 


Najšira zaštita ljudskih i radnih prava osigurana je Međunarodnim paktom o 

ekonomskim, socijalnim i kulturnim pravima, čije odredbe iz oblasti radnog prava 

uključuju: 

Član 6. 

1. Države članice ovog pakta priznaju pravo na rad, koje obuhvaća pravo koje ima 

svako lice na mogućnost zarađivanja kroz slobodno izabran ili prihvaćen rad, i 

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poduzimaju odgovarajuće mjere za očuvanje ovog prava. 

2. Među mjere koje svaka država članica ovog pakta treba da poduzme u cilju punog 

ostvarivanja ovog prava spadaju programi tehničke i stručne orijentacije i obuke, 

politika i metodi za postizanje stalnog ekonomskog, socijalnog i kulturnog razvoja i 

pune proizvodne zaposlenosti u uvjetima koji čovjeku garantiraju uživanje osnovnih 

političkih i ekonomskih sloboda. 

Član 7. 

Države članice ovog pakta priznaju pravo koje ima svako lice da se koristi pravičnim i 

povoljnim uvjetima za rad koji naročito osiguravaju: 

(a) nagradu koja mininalno osigurava svim radnicima: 

(i) pravičnu zaradu i jednaku nagradu za rad i iste vrijednosti bez ikakverazlike, 

a posebno žene moraju da imaju garanciju da uvjeti njihovog rada 

nisu gori od uvjeta koje koriste muškarci i primaju istu nagradu kao oni za 

isti rad; 

(ii) pristojan život za njih i njihovu obitelj shodno odredbama ovog pakta; 

(b) higijensko - tehničku zaštitu na radu; 

(c) istu mogućnost za sve da napreduju u svom radu u višu odgovarajuću kategoriju, 

vodeći računa jedino o navršenim godinama službe i o sposobnostima; 

(d) odmor, razonodu, razumno ograničenje radnog vremena i povremena 

plaćena odsustva, kao i naknadu za praznične dane. 

Član 8. 

1. Države članice ovog pakta obavezuju se da osiguraju: 

(a) pravo koje ima svako lice da sa drugima osniva sindikate i da se učlani u 

sindikat po svom izboru, uz jedini uvjet da pravila budu utvrđena od strane 

zainteresirane organizacije, u cilju unapređenja i zaštite ekonomskih i socijalnih 

interesa. Ostvarivanje ovog prava može biti predmet jedino ograničenja 

predviđenih zakonom i koja predstavljaju potrebne mjere u demokratskom 

društvu, u interesu nacionalne sigurnosti ili javnog poretka, ili zaštite prava i 

sloboda drugoga; 


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(b) pravo koje imaju sindikati da stvaraju udruženja i nacionalne saveze i pravo 

koje ovi imaju na stvaranje međunarodnih sindikalnih organizacija ili na 

učlanjivanje u njih; 

(c) pravo koje imaju sindikati da slobodno obavljaju svoju djelatnost, bez drugog 

ograničenja osim onog koje predviđa zakon, a koje predstavlja potrebnu 

mjeru u demokratskom društvu, u interesu nacionalne sigurnosti ili javnog 

poretka, ili radi zaštite prava i sloboda drugoga; 

(d) pravo na štrajk, koje se ostvaruje prema zakonima svake zemlje. 

2. Ovaj član ne sprječava da se vršenje ovih prava od strane članova oružanih snaga, 

policije ili državne uprave, podvrgne zakonskim ograničenjima. 

3. Nijedna odredba ovog člana ne dopušta državama članicama Konvencije 

Međunarodne organizacije rada od 1948. godine o sindikalnoj slobodi i zaštiti 

sindikalnog rada da donosi zakonske mjere koje bi narušavale ili da primjenjuju 

zakon na način koji bi narušavao garancije predviđene navedenom konvencijom. 

Član 9. 

Države članice ovog pakta priznaju pravo svakom licu na socijalno obezbjeđenje, 

uključujući tu socijalno osiguranje. 

Bosna i Hercegovina je ratifi cirala određene odredbe Europske socijalne 

povelje koji se odnose na rad i radne odnose i to: 


Član 1. - Pravo na rad 

S ciljem osiguranja djelotvornog korištenja prava na rad, zemlje potpisnice preuzimaju 

na sebe: 

1. da ako jedan od svojih primarnih ciljeva i odgovornosti prihvate ostvarivanje i 

održavanje najvišeg i najstabilnijeg mogućeg nivoa zaposlenosti, sa ciljem postizanja 

pune zaposlenosti; 

2. da efikasno zaštite pravo radnika da zarađuje za život u zanimanju koje slobodno odabere; 

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3. da uspostavi ili odražava besplatne službe za zapošljavanje za sve radnike; 

4. da pruža il promovira odgovarajuće stručno usmjeravanje, obuku i rehabilitaciju; 

Član 2. - Pravo na pravične uvjete rada 

U cilju osiguravanja efi kasnog korištenja prava na pravične uvjete rada, zemlje 

potpisnice preuzimaju obvezu da: 

1. predvide razumno dnevno i tjedno radno vrijeme, radni tjedan koji se progresivno 

smanjuje u mjeri koju dopušta povećanje produktivnosti i drugi relevantni faktori; 

2. omoguće plaćene javne praznike; 

3. omoguće najmanje četiri tjedna plaćenog godišnjeg odmora 

4. eliminiraju rizike u inherentno opasnim ili nezdravim zanimanjima, ili tamo gdje još 

uvijek nije moguće eliminirati ili dovoljno smanjiti ove rizike, predvidjeti ili skraćenje 

radnog vremena ili dodatne plaćene neradne dane za radnike koji se bave tim 

zanimanjima; 

5. osiguraju tjedni period odmora koji se u koliko je to moguće, poklapa sa danom 

koji se tradicijom ili običajem u danoj zemlji odnosno regiji smatra danom odmora; 

6. osiguraju da su radnici pismeno informirani, što prije moguće, a u svakom slučaju 

najkasnije dva mjeseca nakon dana stupanja na posao, o najvažnijim aspektima 

ugovora ili radnog odnosa; 

7. osiguraju da radnici koji obavljaju rad noću koriste mjere koje uzimaju u obzir 

posebnu vrstu ovakvog rada. 

Član 4. - Pravo na pravičnu naknadu 

Stav 3. da priznaju pravo radnika muškaraca i žena na jednaku plaću za rad jednake 

vrijednosti. 

Član 5. - Pravo na organiziranje 

U cilju osiguranja odnosno promicanja slobode radnika i poslodavaca da osnivaju 

lokalne, nacionalne ili internacionalne organizacije za zaštitu njihovih ekonomskih i 

socijalnih interesa, i da se uključuju u te organizacije, zemlje potpisnice se obvezuju 

da domaći zakon neće ograničavati, niti će se primjenjivati tako da ograničava ovu 

slobodu. Mjera u kojoj se garancije predviđene ovim članom odnose na policiju će se 

odrediti domaćim zakonima i propisima. Princip koji upravlja primjenom ovih garancija 


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na pripadnike oružanih snaga i mjeru u kojoj se one odnose na osobe iz te kategorije 

će se jednako tako odrediti domaćim zakonima i propisima. 

Član 6. - Pravo na kolektivno pregovaranje 

Sa ciljem osiguranja djelotvornog korištenja prava na kolektivno ugovaranje, zemlje 

potpisnice preuzimaju obvezu da: 

1. promoviraju zajedničke konsultacije između radnika i zaposlenika; 

2. primoviraju, gdje je potrebno i pogodno, mehanizam za dobrovoljne pregovore 

između poslodavaca odnosno organizacija poslodavaca i organizacija radnika, sa 

ciljem reguliranja uvjeta i pretpostavki za zapošljavanje preko kolektivnih ugovora; 

3. promoviraju uspostavu i korištenje odgovarajućih mehanizama pomirenja i 

dobrovoljne arbitraže za rješavanje radnih sporova; i priznaju 

4. pravo radnika i poslodavaca na kolektivnu akciju u slučaju sukoba interesa, 

uključujući pravo na štrajk, uz poštivanje obaveza koje eventualno proističu iz 

kolektivnih sporazuma koji su ranije sklopljeni. 

Član 8. - Pravo zaposlenih žena na porodiljsku zaštitu 

S ciljem osiguranja djelotvornog korištenja prava zaposlenih žena na porodiljsku zaštitu, 

zemlje potpisnice preuzimaju obvezu da: 


1. predvide, bilo preko plaćenog odsustva ili preko adekvatnih naknada socijalne 

zaštite iz javnih fondova da zaposlene žene mogu uzeti dopust prije i nakon 

poroda, u ukupnom trajanju od najmanje 14 tjedana; 

2. smatra nezakonitim da poslodavac da ženi otkaz tijekom vremena od kada 

obavjesti poslodavca da je trudna, do kraja porodiljskog odsustva, ili da joj da 

otkaz tako da otkazni rok istječe za vrijeme tog razdoblja; 

3. osigura da majke koje doje svoju djecu imaju dovoljno slobodnog vremena u te 

svrhe; 

4. regulira rad noću trudnih žena, žena koje su nedavno rodile, i žena koje doje svoju 

djecu; 

5. zabrani zapošljavanje trudnica, žena koje su nedavno rodile i žena koje doje 

svoju djecu u rudarskim poslovima pod zemljom, i svim drugim poslovima koji su 

nepogodni zbog svoje opasne, nezdrave ili naporne naravi i poduze-ti odgovarajuće 

mjere da zaštite prava ovih žena na zapošljavanje. 

Član 12. - Pravo na socijalnu zaštitu 

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S ciljem osiguranja djelotvornog korištenja prava na socijalnu zaštitu zemlje potpisnice 

preuzimaju obvezu da: 

1. uspostave ili održavaju sustav socijalne zaštite; 

2. održavaju sustav socijalne zaštite na zadovoljavajućem nivou, koja je kao minimum 

jednaka onoj koja je potrebna za ratifi kaciju Europskog kodeksa socijalne zaštite. 

Član 22. - Pravo sudjelovanja u odlučivanju o radnim uvjetima i radnoj sredini i 

njihovom poboljšanju 

S ciljem osiguranja djelotvornog korištenja prava radnika da sudjeluju u odlučivanju 

o radnim uvjetima i radnoj sredini i njihovom poboljšanju u okviru poduzeća, zemlje 

potpisnice preuzimaju obvezu da usvoje ili potaknu mjere koje omogućavaju radnicima 

ili njihovim predstavnicima da u skladu sa domaćim zakonima i praksom, doprinesu: 

1. utvrđivanju i poboljšavanju radnih uvjeta, organizacije rada i radnog okruženja; 

2. zaštiti zdravlja i sigurnosti u poduzeću; 

3. organizaciji društvenih i društveno-kulturnih službi i mogućnosti unutar poduzeća; 

4. nadzoru poštivanja propisa o ovom pitanjima; 

2. Utjecaj međunarodnih organizacija / mehanizama 

Povrede radnih prava mogu biti počinjene od strane poslodavaca ali i države. 

Propust države da spriječi povrede prava čini državu odgovornu za ove propuste. Dakle, 

država je dužna i odgovorna uspostaviti mehanizme zaštite prava svojih građana prema 

načelima i u duhu ratificiranih međunarodnih dokumenata. Da bi se na države koje ne 

ispunjavaju svoje međunarodno preuzete obveze utjecalo u okviru sustava UN postoje 

različiti mehanizmi nadzora i to su: mehanizmi nadzora predviđeni međunarodnim 

konvencijama o ljudskim pravima, specijalne procedure koje se primjenjuju u skladu 

sa odlukama relevantnih UN nadzornih tijela i to Komisije za ljudska prava, Potkomisije 

za zaštitu ljudskih prava i Kancelarija visokog komesara za ljudska prava kao poseban 

nadzorni organ. 

Mehanizam nadzora u UN sustavu koji se najviše primjenjuje je sustav 

izvještavanja. Ovaj mehanizam nadzora je uvela Međunarodna organizacija rada i to je 

tzv. regularni mehanizam nadzora koji se temelji na dijalogu nadležnih komiteta i države 

članice. 


Ugovorna tijela, odnosno komiteti su sastavljeni od pojedinaca koji, iako 

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ih biraju strane ugovornice konvencija, djeluju u ličnom svojstvu. Osnovna funkcija 

komiteta je nastojanje da se države ugovornice pridržavaju preuzetih obveza. Da bi tu 

funkciju vršili, komiteti primaju nacionalne izvještaje o mjerama koje države poduzimaju 

radi ostvarivanja prava koja sadrže konvencije i o napretku ostvarenom u uživanju ovih 

prava. Izvještaji se upućuju Generalnom sekretaru UNa koji ih dostavlja relevantnim 

komitetima na razmatranje. U izvještaju treba ukazati, u slučaju potrebe, i na činioce i 

teškoće koje utiču na provođenje u život odredaba konvencije. 

Funkciju nadzora nad provođenjem Međunarodnog pakta o ekonomskim, 

socijalnim i kulturnim pravima vrši Komitet za ekonomska, socijalna i kulturna prava 

(osnovan Rezolucijom ECOSOC-a 1985/17, 28. maja 1985. godine) kojeg čini 18 

članova. Ovom Komitetu, svaka država potpisnica je dužna dostaviti izvještaj o njegovoj 

primjeni u roku od godinu dana nakon potpisivanja Pakta. 

Međunarodne mehanizme nadzora ne treba shvatiti kao zamjenu za nacionalne 

mehanizme i mjere koje se poduzimaju u cilju primjene standarda radnih prava jer je 

osnovna obveza i odgovornost svake države članice da omogući ostvarivanje radnih 

prava svih ljudi pod njenom jurisdikcijom. 

Kako je uočeno da se donošenjem konvencija i preporuka postavljeni ciljevi 

ne ispunjavaju sami od sebe, MOR je uočila da međunarodne pravne standarde treba 

povezati s tehničkom suradnjom kako bi se ti standardi mogli ostvarivati u različitim i 

određenim ekonomskim, socijalnim, kulturnim i drugim okolnostima. Općenito se smatra 

da tehnička suradnja može biti upotrebljena u velikom opsegu ako je utemeljena na 

dobro defi niranim i autoritativnim i opće prihvaćenim standardima. Ukratko, tehnička 

suradnja sastoji se u pružanju materijalne pomoći MOR-a, u suradnji dužnosnika 

i stručnjaka na projektima pojedinih država te u donošenju i primjeni međunarodnih 

standarda i nacionalnog zakonodavstva, upućivanje radnika i stručnjaka u industrijski 

razvijene zemlje radi usavršavanja. Prepoznato je da se putem tehničke suradnje mogu 

osigurati posebno učinkovita sredstava i metode za poticanje primjene standarda. 

Također, nad provedbom tehničke suradnje postoji sistem nadzora. 


Predstavnici zemalja članica UN, odnosno MOR-a se sastaju svake godine u 

junu mjesecu u Ženevi kako bi utvrdili i usvojili međunarodne radne standarde i diskutirali 

o ključnim socijalnim i radnim pitanjima. Ispred svake države dolaze predstavnici vlade 

zajedno sa svojim stručnim savjetnicima, i predstavnici uposlenika i poslodavaca, čiji 

predstavnici mogu slobodno iznijeti svoje stavove u skladu sa instrukcijama svojih 

organizacija. Često se dešava da predstavnici sindikata i poslodavaca glasaju suprotno 

od vladinih predstavnika iz svoje zemlje . 

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3. Odnosi domaćih i međunarodnih aktera u pogledu uspostavljanja 

pravnog okvira radnog zakonodavstva 

U Bosni i Hercegovini su uz domaće pravo na snazi brojni međunarodni akti 

odnosno ugovori. Prema Ustavu, međunarodni ugovori koji su sklopljeni i potvrđeni u 

skladu s Ustavom i objavljeni, čine dio unutarnjeg poretka a po pravnoj su snazi iznad 

zakona. Njihove odredbe mogu se mijenjati ili ukidati samo uz uvjete i način koji su u 

njima utvrđeni ili suglasno općim pravilima međunarodnog prava. 

U većini zemalja Zapadne Europe, primjenjuje se monistički princip prema kome 

domaće i međunarodno pravo čine jedinstveni sustav. U ovom slučaju, međunarodni 

ugovori koje država ratificira ne moraju se usvojiti posebnim nacionalnim zakonskim 

aktima i pretvaraju se u nacionalno pravo ratifi kacijom. Oni automatski postaju dio 

pravnog sustava dotične zemlje. 

S druge strane, prema dualističkoj teoriji smatra se da su međunarodno i 

domaće pravo dva odvojena i neovisna pravna poretka. Da bi međunarodno pravo 

postalo obvezno i primjenjivo na području jedne zemlje, treba prethodno postati dio 

pravnog poretka te zemlje. Potrebno je posebno ozakonjenje ugovora. 

Danas su izvorna monistička i dualistička teorija ublažile svoja stajališta 

zbog upućenih prigovora. Primjena tih teorija upućena je na međusobni odnos 

pravila domaćeg i međunarodnog radnog prava. Različita je pravna narav tih normi. 

Međunarodne se dijele na neposredno primjenjive (primjena ne zahtjeva poduzimanje 

dodatnih zakonodavnih mjera) i programske norme (sastoje se od programskih izjava 

ili pravila te od općih pojmova čije je značenje neodređeno, pa se ne mogu neposredno 

primjenjivati niti se pozivom na njih pred sudom može ostvariti neko subjektivno pravo 

ili preuzeti obveza). Većina je ekonomskih i socijalnih prava međunarodnih ugovora 

uređena programskim normama – smatra se da je na državi obveza da preko vlade 

provodi ciljanu politiku prema postupnom ostvarivanju međunarodne norme. 

Prema Aneksu IV Daytonskog mirovnog sporazuma, Europska konvencija o 

ljudskim pravima i osnovnim slobodama ima direktnu primjenu u Bosni i Hercegovini. 

Ustavom Federacije BiH je određeno da sljedeći instrumenti relevantni za zaštitu 

ljudskih, odnosno radnih prava imaju pravnu snagu ustavnih odredaba. To su: Europska 

socijalna povelja iz 1961. godine i Protokol I, Međunarodni ugovor o gospodarskim, 

socijalnim i kulturnim pravima iz 1966. i dodatni protokoli iz 1989. godine, te Međunarodna 

konvencija o ukidanju svih oblika rasne diskriminacije iz 1965. godine, Međunarodna 

konvencija o ukidanju svih oblika diskriminacije žena iz 1979. godine, Deklaracija 


33


Ujedinjenih naroda o ukidanju svih oblika netolerancije i diskriminacije temeljene na 

vjeri i uvjerenju iz 1981. godine. 

Ustav Republike Srpske također štiti prava na rad i u vezi s radom. Određeno 

je da zaposlenima može prestati radni odnos samo pod uvjetima utvrđenim zakonom i 

kolektivnim ugovorom, te pravo na zaradu po osnovu rada. Zaposleni po ovom Ustavu 

imaju pravo na ograničeno radno vrijeme, te na plaćeni godišnji odmor i odsustva, 

zaštitu na radu, posebnu zaštitu omladine, žena i invalida. Zajamčena je i sloboda 

sindikalnog organiziranja i prava na štrajk, pravo na socijalnu sigurnost i socijalno 

osiguranje zaposlenih i njihovih porodica, te pravo na materijalno osiguranje za vrijeme 

privremene nezaposlenosti, sve pod uvjetima utvrđenim zakonom. 

Međunarodne konvencije legislativnog karaktera daju optimalne mogućnosti 

za zaštitu i unapređenje poštivanja radnih prava. Pojedinac se u ovom slučaju pred 

nadležnim organima može pozvati na svoja prava i efi kasno ih štititi. Ipak, kada je u 

pitanju međunarodni plan, činjenica je da do sada prihvaćeni mehanizmi nadzora imaju 

ograničeni domet. Regularni nadzor – odnosno međunarodni nadzor koji se vrši na 

temelju izvještaja koje države podnose u vezi sa primjenom ratifi ciranih konvencija u 

oblasti ljudskih i radnih prava, kao i specijalni nadzori, bilo oni koji imaju quasi-sudski 

karakter, bilo oni koje sprovode relevantna tijela UNa se u principu svode na politički 

pritisak koji se preporukama nadležnih organa UNa vrši na države članice. 

4. Usaglašenost sa međunarodnim standardima, naročito sa 

praksom MORa o odredbama konvencija MORa 


Bosna i Hercegovina je ratifi cirala ukupno 68 konvencija Međunarodne 

organizacije rada koje je dužna implementirati u pozitivno zakonodavstvo. Mnoge 

od ratifi ciranih konvencija se odnose na reguliranje rada, radnih odnosa i zaštite na 

radu u pomorskim djelatnostima, što za Bosnu i Hercegovinu trenutno nije relevantno. 

No, isto tako, Bosna i Hercegovina je ratifi cirala mnoge od najznačajnijih konvencija 

Međunarodne organizacije rada relevantnih za oblast rada, radnih odnosa i zaštite 

na radu. Može se reći da se entitetski zakoni o radu uglavnom temelje na osnovnim 

načelima usvojenih konvencija. Međutim, bilo bi potrebno osigurati veći stupanj 

harmonizacije propisa o radu sa usvojenim konvencijama, a time i napredak u 

ostvarivanju većeg stupnja socijalne pravde. Ovo se prije svega odnosi na Konvenciju 

o plaćenom godišnjem odmoru br.132., Konvenciju o minimalnoj starosnoj dobi br.138., 

Konvenciju o zaštiti materinstva br.103., Konvenciju o jednakosti nagrađivanja muške 

i ženske radne snage za rad jednake vrijednosti br. 100., Konvenciju o zaštiti na radu i 

zdravlju br. 155. i dr. 

34


U Federaciji BiH, najnovijim Zakonom o izmjenama i dopunama Zakona o radu, 

koji je upućen u zakonsku proceduru, predviđene su i nove odredbe koje detaljnije 

uređuju zabranu diskriminacije i vrste diskriminacije u oblasti rada i zapošljavanja, 

zabranu uznemiravanja ili seksualnog uznemiravanja, nasilje po osnovu spola, kao i 

sistematsko uznemiravanje na radu i u vezi sa radom uključujući mobing kao specifi čan 

oblik sistematskog uznemiravanja. Navedenim je predviđena mogućnost sudskog 

procesuiranja slučajeva diskriminacije u smislu odredaba ovog zakona, gdje je teret 

dokazivanja na poslodavcu, te pravo na naknadu štete u slučaju osnovanosti tužbe. 

Zabrana diskriminacije u smislu nacrta Zakona o izmjenama i dopunama Zakona o radu 

u Federaciji BiH se odnosi na diskriminaciju u odnosu na uvjete za zapošljavanje i izbor 

kandidata za obavljanje određenog posla; uvjete rada i sva prava iz radnog odnosa; 

obrazovanje, osposobljavanje i usavršavanje; napredovanje u poslu i otkazivanje ugovora 

o radu. S tim da se odredbe ugovora o radu kojima se utvrđuje diskriminacija po nekom 

od ovih osnova utvrđuju ništavim. 

Također se predviđa novi član koji jasno propisuje da je poslodavac dužan radnicima 

isplatiti jednake plaće za rad jednake vrijednosti bez obzira na njihovu nacionalnu, vjersku, 

spolnu, političku i sindikalnu pripadnost. Pod radom jednake vrijednosti podrazumijeva se 

rad koji zahtijeva isti stepen stručne spreme, istu radnu sposobnost, odgovornost i fizički 

i intelektualni rad. 

Za nepoštivanje zakonskih propisa predviđena je novčana kazna za prekršaj za 

poslodavca-pravno lice, poslodavca-fizičko lice kao i odgovorno lice u pravnom licu. 

Ovakvim prijedlozima zakonskih rješenja nastojalo se, kroz jasnije i detaljnije pravno 

uređenje, konkretnije djelovati na unapređenju jednakosti i ravnopravnosti spolova i 

njegovoj primjeni u ovoj bitnoj oblasti društvenih odnosa. 

Nadalje, opći propisi o radu nisu u potpunosti usuglašeni sa konvencijama 

Međunarodne organizacije rada (Konvencija 29 o prinudnom radu i Konvencija 105 o 

ukidanju prinudnog rada), kojim se zabranjuju svi oblici prinudnog ili obaveznog rada 

u svim njegovim oblicima. Naime, člankom 32. stav 1. Zakona o radu Federacije BiH 

(Službene novine FBiH 43/99, 32/00 i 29/03) i člankom 43. Zakona o radu Republike 

Srpske (Službeni Glasnik RS 38/00, 40/00,47/02,38/03,66/03 i 20/07) u slučaju više 

sile (požar, potres, poplava) i iznenadnog povećanja posla, ako i u drugim slučajevima 

neophodne potrebe, zaposlenik, na zahtjev poslodavca, obavezan je da radi duže od 

punog radnog vremena, odnosno da radi prekovremeno, a najviše deset sati tjedno. Ova 

odredba Zakona o radu se najčešće zloupotrebljava od strane poslodavaca na način 

da se od uposlenika često zahtjeva da radi duže od punog radnog vremena pravdajući 

to iznenadnim povećanjem posla. U ovakvim slučajevima gdje je radno zakonodavstvo 

ostavilo mogućnost manipulacije u vremenu velike nezaposlenosti odnosno manjka 

radnih mjesta i bojazni od gubitka zaposlenja, poslodavac može lako zloupotrebljavati 

propise i rad van zvaničnog radnog vremena lako pravdati pred inspekcijom rada.] 


35


Vezano za Konvenciju 98 o pravima radnika na organiziranje i na kolektivno 

pregovaranje, u Brčko distriktu ni poslije 9 godina od donošenja Zakona o radu Brčko 

distrikta nije donijet Opći kolektivni ugovor, odnosno sa socijalnim partnerima (sindikat 

i udruženje poslodavaca) nije implementiran međunarodni standard tripartizma 

predviđen ovom konvencijom. 

No, može se zaključiti da s aspekta kršenja odredaba ratifi ciranih konvencija 

MOR-a, primjenjivost propisa iz oblasti radnog prava u Bosni i Hercegovini predstavlja 

daleko veći problem od problema normativne usaglašenosti propisa sa Konvencijama. 


36


Poglavlje III 

Konačni zaključci i preporuke 

Bosna i Hercegovina je nedavno ratificirala Europsku socijalnu povelju koja sadrži 

značajne odredbe iz oblasti radnoga prava. Stjecanjem neovisnosti, Bosna i Hercegovina 

je ratificirala Međunarodni pakt o ekonomskim, socijalnim i kulturnim pravima kao i većinu 

konvencija iz oblasti rada i radnih odnosa. 

Oblast rada i radnih odnosa je u nadležnosti bosanskohercegovačkih entiteta, i propisi 

iz ove oblasti su u najvećoj mjeri harmonizirani sa ovim međunarodnim pravnim aktima. 

Međutim, ono što zabrinjava je loša i nedosljedna implementacija usvojenih propisa na 

štetu radnika. Ovo je jednim dijelom uzrokovano nepostojanjem adekvatnih institucionalnih 

mehanizama i slabim kapacitetom nadležnih institucija u uvjetovanju primjene zakonskih 

propisa, i s druge strane opće lošom ekonomskom situacijom u zemlji koja se manifestira 

kroz rast sive ekonomije i takozvanog rada na crno. 

Učestalost i karakter različitih oblika kršenja radnih prava u Bosni i Hercegovini 

su zabrinjavajući. Najučestaliji oblici kršenja radnih prava se odnose na razne oblike 

nepoštivanja propisa i nepoštivanja ugovora o radu, kršenje prava radnika neuplaćivanjem 

obaveznog socijalnog osiguranja, neplaćanja prekovremenog rada, diskriminaciju kod 

zapošljavanja, lošom zaštitom na radu i ostalo. Da bi problem bio veći, zaposlenici 

najčešće nisu upoznati sa svojim osnovnim pravima, pravilnici o radu im najčešće nisu 

dostupni, a česti su slučajevi i da sami radnici dobrovoljno pristaju na loše uvjete rada, 

bez plaćanja socijalnog osiguranja, odnosno rade na crno. 

Bosna i Hercegovina treba u potpunosti harmonizirati propise iz oblasti rada i 

radnih odnosa kako isti ne bi, s jedne strane bili prepreka mobilnosti radne snage u zemlji, 

i s druge strane prepreka u ostvarivanju prava radnika u zemlji. Kako propisi ne bi bili 

samo mrtvo slovo na papiru, nadležna ministarstva i institucije više napora trebaju učiniti 

na dosljednijoj primjeni propisa. Da bi se u ovom uspjelo, zakonodavstvo u ovoj oblasti 

treba biti prije svega u potpunosti harmonizirano s međunarodno preuzetim obvezama 

ali na način da ove odredbe budu jasne, lako primjenjive i harmonizirane sa drugim 

propisima iz oblasti socijalne zaštite. Država, odnosno sve nadležne razine vlasti trebaju 

učiniti puno više na informiranosti kako radnika, tako i poslodavaca i njihovih predstavnika 

o njihovim pravima i obvezama. 

Najdrastičnije oblike kršenja radnih prava imamo u oblasti sive ekonomije. 

Realno gledajući siva ekonomija i rad na crno se mogu smanjiti samo rastom registrirane 

zaposlenosti i rastom ekonomske aktivnosti u zemlji. Država, odnosno nadležne razine vlasti, 

na ovom polju treba učiniti puno više, što je i obveza države prema odredbama Europske 


37


socijalne povelje kao i Europskog pakta o ekonomskim, socijalnim i kulturnim pravima. 

Društva i države u kojim se ne poštuju radna prava boluju od izraženih socijalnih 

problema i nestabilnosti koji uvjetuju opću političku nestabilnost i time nepovoljno okruženje 

za poslovne investicije i ekonomski razvoj. Poštivanje, zaštita i puna primjena, odnosno 

ostvarivanje radnih prava u zemlji predstavlja preduvjet za razvoj gospodarstva i rast 

ekonomske aktivnosti u zemlji. Bosna i Hercegovina ima izbor krenuti putem društvenog 

i ekonomskog napretka za što je neophodna primjena i poštivanje radnih prava. 


38


Literatura 

- Inicijativa za razvoj (01.04.08.-20.08.2009),“Poboljšanje ekonomskih i 

socijalnih kapaciteta i jačanje produktivne mreže i uključenja u tržište rada, 

a naročito pomoć ugroženim kategorijama“. 

- E/C.12/BIH/CO/1, Zaključne napomene Komiteta o ekonomskim, socijalnim 

i kulturnim pravima 

- ICVA (jun 2009), „Primjena Evropske socijalne povelje kroz zakone i praksu 

u BiH“ Sarajevo 

- Učar M. i Laleta S. (2007),“Konvencije Međunarodne organizacije rada s 

komentarima“, Zagreb 

- E.R. Tiongson, and R.G. Yemtsov (2005), „Poverty and the labor market in 

Bosnia and Herzegovina: 2001 to 2004“, mimeo, Svjetska banka 

- S. Dedić i J. Gradaščević (2000), „Temelji međunarodnog radnog prava“, 

Pravni centar, Fond Otvoreno društvo BiH. 

- Udruženje Vaša prava BiH: „Analiza propisa i stanja u oblasti radnog 

prava“, maj, 2006 godine 

- Amnesty International: Bosna i Hercegovina. Iza zatvorenih vrata: etnička 

diskriminacija u zapošljavanju. AI Index: EUR 63/001/2006. januar 2006. 

- Bosna i Hercegovina: Izvještaj o implementaciji međunarodnog ugovora 

o ekonomskim, socijalnim i kulturnim pravima”, 21. Juli 2004. godine, 

stranica 24. 

- Bosna i Hercegovina. 2008 Izvještaj o napretku. Europska komisija. 05. 

novembar 2008. g. str. 41 


39


Dodatak I 

Spisak relevantnih ILO konvencija ratificiranih od strane Bosne i Hercegovine 


Konvencija 

D a t u m 

ratifikacije 

C2 Konvencija o nezaposlenosti, 1919 02.06.1993. 

C3 Konvencija o zaštiti majčinstva, 1919 02.06.1993. 

C8 Konvencija o naknadi za nezaposlenost, 1920 02.06.1993. 

C9 Konvencija o zapošljavanju mornara, 1920 02.06.1993. 

C11 Konvencija o pravu na udruživanje (poljoprivreda), 1921 02.06.1993. 

C12 Konvencija o obeštećenju radnika (poljoprivreda), 1921 02.06.1993. 

C13 Konvencija o upotrebi olovnog bjelila (u bojenju), 1921 02.06.1993. 

C14 Konvencija o tjednom odmoru (u industriji), 1921 02.06.1993. 

C17 Konvencija o obeštećenju radnika (u slučaju nesreće), 1925 02.06.1993. 

C19 Konvencija o jednakom tretmanu (obeštećenju u slučaju nesreće), 

1925 

02.06.1993. 

C22 Konvencija o ugovoru o zaposlenju mornara, 1926 02.06.1993. 

C24 Konvencija o osiguranju u slučaju bolesti (industrija) 1927 02.06.1993. 

C25 Konvencija o osiguranju u slučaju bolesti (poljoprivreda), 1927 02.06.1993. 

C29 Konvencija o prinudnom ili obveznom radu, 1930 02.06.1993. 

C32 Konvencija o zaštiti dokerskih radnika u slučaju nesreće 

(revidirana), 1932 

02.06.1993. 

C45 Konvencija o zapošljavanju žena na poslovima pod zemljom, 1935 02.06.1993. 

C48 Konvencija o očuvanju penzionih prava radnika migranata, 1935 02.06.1993. 

C53 Konvencija o minimumu stručnih sposobnosti oficira trgovačke 

mornarice, 1936 

02.06.1993. 

C56 Konvencija o osiguranju pomoraca u slučaju bolesti, 1936 02.06.1993. 

C69 Konvencija koja se odnosi na diplomu brodskog kuhara, 1946 02.06.1993. 

C81 Konvencija o inspekciji rada, 1947 02.06.1993. 

C87 Konvencija o slobodi udruživanja i zaštiti prava na organiziranje, 

1948 

02.06.1993. 

C88 Konvencija o službama zapošljavanja, 1948 02.06.1993. 

C89 Konvencija o noćnom radu žena (revidirana), 1948 02.06.1993. 

C90 Konvencija o noćnom radu mladih osoba u industriji (revidirana), 

1948 

02.06.1993. 

C91 Konvencija o plaćenom dopustu (pomoraca) (revidirana), 1949 02.06.1993. 

C97 Konvencija o migraciji u svrhu zapošljavanja (revidirana), 1949 02.06.1993. 

40


C98 Konvencija o pravu na organiziranje i kolektivno pregovaranje, 

1949 

02.06.1993. 

C100 Konvencija o jednakom nagrađivanju, 1951 02.06.1993. 

C102 Konvencija o minimalnim standardima socijalne sigurnosti, 1952 02.06.1993. 

C103 Konvencija o zaštiti materinstva (revidirana), 1952 02.06.1993. 

C105 Konvencija o ukidanju prinudnog ili obveznog rada, 1957 02.06.1993. 

C106 Konvencija o tjednom odmoru u trgovini i biroima, 1957 02.06.1993. 

C109 Konvencija o plaćama, radnom vremenu na brodu i brojnom 

stanju posade (revidirana), 1958 

02.06.1993. 

C111 Konvencija o diskriminaciji u odnosu na zaposlenje i zanimanje, 

1958 

02.06.1993. 

C114 Konvencija koja se odnosi na ugovor o zaposlenju ribara, 1959 02.06.1993. 

C121 Konvencija o naknadama za slučaj povrede na radu, 1964 

(Raspored I sa amandmanima iz 1980) 

02.06.1993. 

C122 Konvencija o politici zapošljavanja, 1964 02.06.1993. 

C126 Konvencija o smještaju posade na ribarskim brodovima, 1966 02.06.1993. 

C129 Konvencija o inspekciji rada u poljoprivredi, 1969 02.06.1993. 

C131 Konvencija o utvrđivanju minimalnih plaća, 1970 02.06.1993. 

C132 Konvencija o plaćenom odmoru (revidirana), 1970 02.06.1993. 

C135 Konvencija o radničkim predstavnicima, 1971 02.06.1993. 

C136 Konvencija o zaštiti od trovanja benzolom, 1971 02.06.1993. 

C138 Konvencija o minimalnoj starosti, 1973 02.06.1993. 

C139 Konvencija o profesionalnim kanceroznim oboljenjima, 1874 02.06.1993. 

C140 Konvencija koja se odnosi na plaćeno odsustvo radi stručnog 

usavršavanja, 1974 

02.06.1993. 

C142 Konvencija koja se odnosi na razvoj ljudskih resursa, 1975 02.06.1993. 

C143 Konvencija o radnicima migrantima (dopunske odredbe), 1975 02.06.1993. 

C144 Konvencija o tripartitnim konsultacijama (međunarodnim radnim 

standardima), 1976 

02.06.1993. 

C148 Konvencija o radnoj okolini (zagađanje vazduha, buka i vibracije), 

1977 

02.06.1993. 

C155 Konvencija o zaštiti na radu i zdravlju, 1981 02.06.1993. 

C156 Konvencija koja se odnosi na radnike sa obiteljskim obvezama 02.06.1993. 

C158 Konvencija o prestanku radnog odnosa, 1982 02.06.1993. 

C159 Konvencija o profesionalnoj rehabilitaciji i zapošljavanju invalida, 

1983 

02.06.1993. 

C182 Konvencija o najgorim oblicima dječjeg rada, 1999 05.10.2001. 


41


Uvod 

Socio – ekonomskim pravima se garantira pristup resursima, uslugama i 

mogućnostima neophodnim za život sa dignitetom. To su prije svega pravo na rad, 

obrazovanje, stanovanje, zdravstvenu zaštitu, socijalnu zaštitu, zdrav okoliš i ostalo. 

Osnovni međunarodni akti kojim se garantiraju socio-ekonomska prava su Međunarodni 

pakt o ekonomskim, socijalnim i kulturnim pravima, koji je Bosna i Hercegovina ratifi cirala 

još 1992. godine, kao i revidirana Europska socijalna povelja, čije najznačajnije odredbe 

je Bosna i Hercegovina ratifi cirala 2008. godine. Socio-ekonomska prava su koncipirana 

na način da država ima dužnost poštivati ih, štititi i ispunjavati. 

S aspekta ispunjenja obveza, odnosno prava garantiranih Europskom 

socijalnom poveljom i Međunarodnim paktom o ekonomskim, socijalnim i kulturnim 

pravima, obveza leži na državi potpisnici, što znači da je način na koji će se ova prava 

ispuniti u isključivoj brizi svake države. To znači da svaka država za sebe određuje 

modele socijalne zaštite na način kako to najbolje odgovara njenom političko državnom 

uređenju, tradiciji, specifi čnim problemima koji opterećuju zemlju, te odabranim 

političkim ciljevima i ostalome. 

Sustav socijalne zaštite u Bosni i Hercegovini je u nadležnosti entiteta, a u 

Federaciji BiH u podijeljenoj nadležnosti entiteta i kantona. Zbog svoje segmentiranosti 

i neharmoniziranosti, te neadekvatnog načina fi nanciranja socijalnog osiguranja 

prema bismarkovskim načelima, sustav socijalne zaštite uzrokuje nejednakosti među 

građanima obuhvaćenim socijalnom zaštitom, dok u isto vrijeme mnoge socijalno 

ugrožene kategorije ostavlja izvan sustava. Međutim, jedna od temeljnih obveza 

države prema Međunarodnom paktu o ekonomskim, socijalnim i kulturnim pravima 

kao i Europskoj socijalnoj povelji, je garantiranje minimuma socio ekonomskih prava 

svakom pojedincu koji nije u mogućnosti svojim radom ili angažmanom sebi osigurati 

određeni minimum. Na mnoge propuste u garantiranju socio ekonomskih prava u Bosni 

i Hercegovini ukazju i izvještaji Komiteta ESKP, gdje se posebno, više puta apeliralo 

na Bosnu i Hercegovinu da pojača svoje napore u borbi protiv nezaposlenosti kroz 

posebno ciljane programe. 

Socio-ekonomska prava u Bosni i 

Hercegovini 

Obzirom da je Bosna i Hercegovina u upravno administrativnom smislu složena 

država sa podijeljenim nadležnostima vezanim za oblast socio-ekonomskih prava, 

neophodna je bolja koordinacija različitih razina vlasti u oblasti socijalne politike kako bi 

se harmonizirali propisi i otklonila diskriminacija korisnika različitih segmenata socijalne 

zaštite u zemlji i uočile nedosljednosti i propusti u ovoj oblasti. Za uspostavljanje ove 

koordinacije je, u prvom redu potrebna politička volja i opredjeljenost političke elite za 

ispunjavanje obveza preuzetih potpisivanjem i ratifi ciranjem međunarodnih pravnih 

akata, kao što su Međunarodnih pakt o ekonomskim i socijalnim pravima kao i Europska 

socijalna povelja, ali isto tako i ustavne odredbe kako entiteta tako i države kako iste ne 

bi bile samo mrtvo slovo na papiru. 

45


Poglavlje I 

1. Opći pregled 

Bosna i Hercegovina je u posljednja dva desetljeća prošla kroz dramatičnu 

promjenu ekonomske i društvene strukture. Ratni sukobi u razdoblju od 1992. do 

kraja 1995. godine su imali razarajući efekt na cijelo društvo, čije posljedice će se 

dugo osjetiti. Ljudska stradanja, veliki broj osoba sa invaliditetom, traume preživjelih, 

razorene zajednice su posljedice ovog četverogodišnjeg sukoba. Obzirom da u Bosni 

i Hercegovini nakon rata nije bilo popisa stanovništva, točan broj stradalih u ratu još 

uvijek nije utvrđen i za sada se koriste razne procjene. No, bez obzira na ovu činjenicu, 

poznato je da je rat uzrokovao velika pomjeranja stanovništva unutar zemlje a značajan 

broj ljudi je iz političkih i socio - ekonomskih razloga napustio zemlju. Unatoč značajnoj 

materijalnoj pomoći, uloženoj od strane kako međunarodnih organizacija tako i domaćih 

institucija, proces povratka u poslijeratnom razdoblju se odvijao sporo i u nedovoljnom 

obimu. Zbog svega spomenutog, zajednice koje su postojale prije rata se teško 

obnavljaju. Uništenje društva, tolerancije i suživota, razaranje obitelji i zajednica te 

derogiranje društvenih vrijednosti i uobičajenog načina života su najtragičnije posljedice 

sukoba koje se očito ne mogu izbrisati u kratkom vremenskom roku. 

Tijekom ratnih sukoba industrija BiH doživjela je potpuni kolaps, i većina 

industrijskih kapaciteta oštećena je ili potpuno uništena. Direktna materijalna i 

ekonomska šteta se procjenjuje na 50-60 milijardi US$, što znači da je gotovo potpuno 

uništena većina proizvodnih kapaciteta (1) . Proces ekonomske tranzicije u Bosni i 

Hercegovini počeo je relativno kasno, tek nakon rata i njegovih razarajućih 

učinaka po ukupnu privredu zemlje i njezino stanovništvo. Kako zbog problema 

uzrokovanih ratnom destrukcijom, ekonomskom tranzicijom, sporom i 

neefikasnom privatizacijom, Bosna i Hercegovina ima ogroman broj zvanično 

nezaposlenih radnika koje formalna ekonomija još uvijek nema potencijal da 

apsorbira tako da oni zaposlenje nalaze u neformalnoj ili sivoj ekonomiji. 


Hercegovini 

2. Sadašnja situacija u vezi sa socio – ekonomskim pravima u BiH 

Pravo na rad predstavlja jedno od osnovnih socio-ekonomskih prava koje je 

na žalost mnogima u Bosni i Hercegovini uskraćeno. Iz donje Tablice 1 vidimo da od 

ukupnog procjenjenog stanovništva radne životne dobi od 15 do 65. godine, u 2008. 

godini je svega 27% u Federaciji BiH i 36% u Republici Srpskoj bilo u radnom odnosu. 

1 UNDP Izvještaj o humanom razvoju 2007: Socijalna uključenost u Bosni i Hercegovini, st. 22. 

47



Hercegovini 

Tablica 1: Glavni pokazatelji tržišta rada u BiH 2005. – 2008. 

2005. 2006. 2007. 2008. X-2009 

Stan. 15 – 64 FBiH* 1.576.172 1.578.223 1.580.494 1.580.494 1.579.827 

Stan. 15 – 64 RS** - 760.000 762.000 717.000 717.000 

Broj zaposlenih BiH 644.516 654.252 669.652 689.950 - 



Broj nezaposlenih 

BiH*** 

508.039 524.839 515.746 483.121 - 



Aktivno stan. BiH 1.152.555 1.179.091 1.185.401 1.173.071 - 

- Aktivno stan. FBiH 735.891 751.969 781.246 776.126 777.317 

- Aktivno stan. RS 384.955 392.245 392.443 392.279 - 

Stopa aktivnosti u FbiH 0,46 0,47 0,49 0,49 0,49 

Stopa aktivnosti u RS-u - 0,51 0,51 0,55 - 

Stopa zaposlenosti 

FBiH 

0,24 0,24 0,26 0,27 0.27 

Stopa zaposlenosti RS - 0,32 0,33 0,36 - 


FbiH 

0,22 0,23 0,23 0,22 0.22 


RS 

- 0,19 0,17 0,18 - 

* Procjena Federalnog zavoda za statistiku 

** Procjena Ankete o radnoj snazi 

*** Podaci uključuju podatke za Brčko distrikt 

Izvor: Agencija za rad i zapošljavanje BiH, Agencija za statistiku FBiH, Republički 

zavod za statistiku RS-a, Anketa o radnoj snazi (2008.) i vlastiti izračun 

Kao što se može očekivati, Bosna i Hercegovina ima dosta visok broj registrirane 

nezaposlenosti. Kao što se vidi iz Tablice 1, u 2008. godini, stopa nezaposlenosti u Republici 

Srpskoj iznosi 18% a u Federaciji BiH 22 %. No, još više zabrinjava činjenica da je oko 

50% radno sposobnog stanovništva u oba entiteta ekonomski neaktivno, što znači da se 

ne vode u evidenciji zaposlenih niti nezaposlenih. Visoka stopa neaktivnosti je jedan od 

indikatora veličine sive ekonomije i takozvanog rada na crno u Bosni i Hercegovini. Smatra 

se da veliki broj osoba koje su registrirane kao nezaposlene radi u sivoj ekonomiji, na 

što ukazuju mnoge studije i ankete. Prema izvješću Svjetske banke iz 2005. godine, udio 

neslužbenoga sektora u ukupnoj zaposlenosti u BiH povećao se s 37% na 42% u razdoblju 

od 2001. – 2004. godine, rastući s 41 na 49% u RS-u i s 33 na 36% u Federaciji BiH. 

48


Kompletni statistički podaci o zaposlenosti i nezaposlenosti u Bosni i Hercegovini 

za 2009. godinu još uvijek nisu kompletirani. No, prema izvještaju Ombudsmena BiH za 

2009. godinu navodi se da trenutno socijalno-ekonomsko stanje u državi se odražava 

na povećanje nezaposlenosti, sa tendencijom njenog daljnjeg rasta i posebno pogađa 

mlade ljude, a indirektno se odražava i na prava djece i uživanje porodičnog života. 

Posebno zabrinjava odsustvo programa za zapošljavanje mladih. 

Oblast socijalne zaštite je od iznimnog značaja za ostvarivanje socio-ekonomskih 

prava u svakoj zemlji. Ona uključuje oblast socijalnog osiguranja temeljenog na radnom 

odnosu kao što je osiguranje za nezaposlenost, mirovinsko i invalidsko osiguranje i 

zdravstveno osiguranje, te oblast socijalne pomoći koja treba da obuhvati socijalno 

ugrožene kategorije stanovništva preko različitih programa. 

Najznačajniji segment socijalnog osiguranja i socijalne zaštite u Bosni i 

Hercegovini predstavlja mirovinsko i invalidsko osiguranja. Iz donje Tablice 2 vidimo da 

je u Bosni i Hercegovini na kraju 2008. godine bilo 551.974 umirovljenika, što predstavlja 

14% procjenjene populacije (2) . 

Tablica 2: Odnos umirovljenika i osiguranika u Federaciji BiH i Republici Srpskoj 

Federacija BiH 

Republika Srpska 

godina Umirovljenici Osiguranici Umirovljenici / Umirovljenici Osiguranici Umirovljenici / 

Osiguranici 

Osiguranici 

2004. 298.331 432.895 68,9% 186.188 286.984 64,8% 

2005. 306.681 435.658 70,3% 189.741 281.928 67,3% 

2006. 314.462 447.562 70,2% 195.069 289.214 67,4% 

2007. 326.359 475.768 68,5% 202.564 304.956 66,4% 

2008. 342.653 488.160 70,2% 209.321 311.362 67,2% 

Izvor: Federalni zavod MIO Mostar i Fond PIO RS 


Hercegovini 

Obzirom da se mirovinski fondovi i izdaci za mirovine u oba entiteta fi nanciraju 

prvenstveno iz doprinosa za mirovinsko i invalidsko osiguranje radne populacije (3) , 

nizak broj formalno zaposlenih, odnosno nizak broj osiguranika (prikazan u Tablici 

2), je glavni uzrok niskih prihoda od doprinosa što kao rezultat ima nisku razinu 

mirovina u zemlji. Minimalna mirovina u Republici Srpskoj iznosi 160KM, a u Federaciji 

BiH 296KM. U Federaciji BiH minimalnu mirovinu prima oko 51% svih umirovljenika. 

Poznato je da većina umirovljenika nije u mogućnosti podmiriti osnovne životne potrebe 

sa mirovinskim primanjima, te većina živi na granici siromaštva. 

2 Prema procjenama Agencije za statistiku BiH, stanovništvo BiH u 2008. godini iznosi 3.842.265 

3 Oba entitetska fonda funkcioniraju prema PAYG načelima defi niranih prava. 

49


Tablica 3: Procent osoba koje su primile starosnu mirovinu i prosječan iznos mirovine 

prema spolu i starosnim grupama 

Osobe koje su primile Osobe koje su Prosječna 

Dobna skupina 

mirovinu u odnosu na primile starosnu starosna mirovina 

ukupna stanovništvo (%) mirovinu (%) 

(KM) 

Muškarci Žene Muškarci Žene Muškarci Žene 

< 55 1.09 0.76 6.78 11.54 221.54 119.19 

55-59 17.56 17.31 4.93 15.38 189.37 141.36 

60-64 55.64 23.07 24.67 30.71 160.63 140.89 

65-69 74.70 16.84 28.83 20.78 200.29 147.54 

70 + 65.78 11.28 34.80 21.60 203.63 150.13 

Ukupno 12.71 4.88 100 100 192.57 141.84 

Izvor: Living Standard Measurment Survey LSMS (9.3.1) 


Hercegovini 

U gornjoj tabeli je dana procjena pokrivenosti starosne mirovine, na temelju 

LSMS ankete. Iz tabele se vidi da dosta manji broj žena u odnosu na muškarce ima 

starosnu mirovinu. LSMS podaci pokazuju da starosni kohort od 65 do 69 godina ima 

najviše umirovljenika i isti primaju najveći iznos mirovina. Ovi umirovljenici su stekli 

mirovine prije rata u sustavu koji je bio dobro reguliran. Međutim, ova anketa ukazuje 

i na velike rodne (gender) razlike, posebno kod grupe umirovljenika starijih od 60 

godine. Znatno manji broj žena u odnosu na muškarce ima starosnu mirovinu i iznos 

njihovih mirovina je znatno niži nego kod muškaraca. Također, rezultati Ankete ukazuju 

na probleme velikog broja osoba bez mirovinskih primanja. Očigledno je da problemi 

nepokrivenosti mirovinskim osiguranjem, koji su postojali prije rata u sustavu koji je 

relativno dobro funkcionirao, postoje i danas. Kao i u prijeratnom periodu, i danas 

većina ruralnog stanovništva nije obuhvaćena mirovinskim osiguranjem. Obzirom da 

su rijetki oni koji žive na selu i uplaćuju sebi doprinose ili su formalno zaposleni. Drugu 

skupinu čine samo – uposleni koji često imaju niske prihode od djelatnosti te si ne 

mogu priuštiti plaćanje doprinosa. Bez obzira na izuzetno niska primanja umirovljenika 

u Bosni i Hercegovini, ove osobe djeluju privilegirano u poređenju s osobama starije 

životne dobi koji nemaju nikakva primanja. 

S druge strane, izvještaj Ombudsmena za BiH za 2009. godini navodi da je u 

oblasti mirovinskog i invalidskog osiguranja i dalje prisutna diskriminacija penzionera 

kao direktna posljedica rata koja se manifestira na način da penzioneri s obzirom na 

entitet u kojem žive, nemaju isti osnov za obračun penzije iako je ta penzija zarađena 

po istom zakonu i jedinstvenom ekonomskom i administrativno pravnom prostoru u 

bivšoj SRBiH. Ovo predstavlja dodatan problem ako se radi o penzionerima koji su to 

pravo ostvarili u nekoj od država nastalih raspadom bivše SFRJ ili su ostvarili to pravo u 

BiH, a nastanili se u nekoj od ovih država. Automatski problem sa ostvarivanjem prava 

50


na penziju podiže i pitanje njihove zdravstvene zaštite uslijed problema neprenosivosti 

zdravstvenog osiguranja. 

Organizacija sustava zdravstvene zaštite u Bosni i Hercegovini prati teritorijalno 

upravnu shemu entiteta i kantona, tako da u zemlji postoji 13 ministarstava zdravstva 

i 13 fondova zdravstvenog osiguranja. Međutim, uspostavljeni sistem zdravstvene 

zaštite onemogućava adekvatan pristup građanima ovom pravu. Građani imaju različit 

pristup s obzirom na teritorij gdje žive i pravo na zdravstvenu zaštitu nije prenosivo već 

je moguće ostvariti isključivo u mjestu stanovanja. Ovaj pristup ugrožava građane koji 

privremeno žive izvan mjesta gdje su prijavljeni na zdravstveno osiguranje, kao što su 

osobe sa mentalnim invaliditetom smještene u ustanove koje se nalaze izvan teritorija 

na kojem imaju status zdravstvenog osiguranja. Sličan problem je sa penzionerima, 

studentima itd. Nadalje, mnoge osobe u Bosni i Hercegovini nisu zdravstveno osigurane. 

Prema procjenama za 2005 godinu, obuhvat stanovništva zdravstvenim osiguranjem u 

Republici Srpskoj je bio oko 54%, dok je u istom razdoblju u Federaciji BiH bio nešto 

veći i iznosio je oko 80% (4) . U većini slučajeva plaćanje participacije za zdravstvenu 

zaštitu je neophodno čak i za one koji su osigurani. Ovim je pristup zdravstvenoj zaštiti 

posebno onemogućen osobama bez redovitih prihoda. 

Sustav obrazovanja u Bosni i Hercegovini je također podijeljen prema entitetima, 

odnosno u Federaciji BiH prema kantonima, gdje svaki entitet, odnosno kanton, ima 

mogućnost neovisno uređivati obrazovnu politku. Značajan problem u obrazovnom 

sustavu Bosne i Hercegovine predstavlja postojanje etnički isključivog kurikuluma, što 

neke roditelje prisiljava da svoju djecu šalju u druge škole, njima više odgovarajuće. 

Procjenjuje se da je u 2002. godini između 5.000 i 10.000 djece putovalo preko 

entitetskih i kantonalnih linija razgraničenja kako bi dobili obrazovanje prema željenom 

etničkom kurikulumu (5) . Nadalje, u BiH je i dalje prisutan koncept dvije odnosno tri škole 

pod jednim krovom iako su UN komiteti tražili od BiH da poduzmu mjere na otklanjanju 

ovog modela koji dovodi do diskriminacije i segregacije djece u školama po etničkom 

principu. 


Hercegovini 

Za razdoblje 2002 – 2004 procent pismenosti u Bosni i Hercegovini se 

procjenjivao na 96,7 (6) , što je prilično visok procent i atributira se naslijeđu dobro 

4 “Social Protection and Social Exclusion in Bosnia and Herzegovina”, st. 119 

5 Access to Education, Training and Employment of Ethnic Minorities in Western Balkans: Country Report for 

Bosnia and Herzegovina; Silvija Railic, European Academy Bolzano (EURAC), citirano u „Social Protectiona 

and Social Inclusion in Bosnia and Hrzegovina“ st.24. 

6 United Nations Educational, Scientifi c, and Cultural Organisation (UNESCO) Institute for Statistics. 2006. 

World Education Indicators, Literacy Statistics, Paris: UNESCO, citirano u „Social Protection and Social 

51


razvijenog sustava obrazovanja uspostavljenog prije ratnih sukoba. Međutim, postoji 

negativna tendencija broja učenika koji završavaju osnovnu školu uslijed preranog 

napuštanja obrazovanja, što će imati negativne posljedice po njihov položaj na tržištu 

rada u budućnosti i izloženost siromaštvu. Prema izvještaju fi nanciranom od GTZ-a 

o pitanju mladih (7) , neto stopa upisa mladih u srednje škole je 76.2%, i od toga broja 

svega 54% učenika završi srednje obrazovanje u zadanom roku. Stopa upisa na 

visokoškolske programe je 24%, dok svega 10% od svih upisanih studiranje završi na 

vrijeme. 


Hercegovini 

Postoje značajni indikatori o postojanju neravnopravnog pristupa i neimanju 

jednakih šansi u obrazovnom sustavu u Bosni i Hercegovini. Također, postoje značajne 

razlike u stopama upisa kod djece iz obitelji različitog imovinskog stanja, gdje je uočena 

niža stopa upisa djeca iz siromašnijih obitelji (8) . Nadalje, djeca sa posebnim potrebama 

imaju problem pristupa obrazovanju. Svega 1% djece sa posebnim potrebama se 

upisuje u regularne škole obrazovnog sustava. Ograničen pristup obrazovanju imaju 

i određene nacionalne skupine. Međunarodne agencije koje se bave pitanjem Roma 

procjenjuju da manje od 15% romske djece je integrirano obrazovnim sustavom u 

BiH, mada je u zadnje vrijeme primijećen rast broja romske djece u školama. Helsinški 

komitet za ljudska prava u BiH procjenjuje da 70% romske djece nikad nije sjedilo u 

školskoj klupi. Glavni faktori koji limitiraju pristup obrazovanju romske djece su izrazito 

visoka stopa siromaštva kod romske populacije, i time nemogućnost roditelja da snose 

trošak obrazovanja, te korištenje djece za rad, njihovo maltretiranje u školama, jezične 

barijere jer većina romske djece ne poznaju dobro službene jezike u Bosni i Hercegovini. 

Izbjeglice i interno raseljeni predstavljaju posebno ranjivu skupinu s aspekta 

izloženosti siromaštvu i svim oblicima diskriminacije. Posebno ugroženu kategoriju 

povratnika predstavljaju žene, samohrane majke i starija lica. Što se tiče povratka 

izbjeglih i raseljenih lica u prijeratna mjesta stanovanja primjetan je napredak koji je BiH 

ostvarila uz pomoć međunarodne pomoći kada je u pitanju obnova i ponovna izgradnja 

stambenih jedinica, i napredak u planiranju proračunskih sredstava u entitetskim 

proračunima svake godine gdje se predviđaju sredstva za te namjene. 

Mimo programa rekonstrukcije povratničkih naselja i stambenih jedinica i 

programa za stambeno zbrinjavanje bivše boračke populacije, u zemlji ne postoji opća 

stambena politika. Za razliku od bivše države koja je imala razvijenu stambenu politiku, 

Inclusion in Bosna and Herzegovina“, st. 24. 

7 Analysis of youth position in Bosnia and Herzegovina; Commission for Youth Issues in Bosnia and 

Herzegovina, May 2008, citirano u „Social Protection and Social Inclusion in Bosnia and Herzegovina“, st.24. 

8 LSMS 2001 

52


u Daytonskoj Bosni i Hercegovini, stambena politika kao segment socijalne politike 

je dana u nadležnost entiteta, odnosno u Federaciji BiH kantona i entiteta, i potpuno 

je zapostavljena. Ovo je slučaj posebno u Federaciji BiH. Problem nedovoljnog broja 

stambenih jedinica u Bosni i Hercegovini je bio prisutan i prije ratnih sukoba. 

Prema procjenama za 2004.godinu, 82.4% domaćinstava u Bosni i Hercegovini 

ima vlasništvo nad kućom ili stanom, što predstavlja značajno povećanje u odnosu na 

2001. godinu kada je ovaj procent iznosio 70% (9) . Prema istim procjenama, u 2004. godini 

4.6% domaćinstava je živjelo u iznajmljenom smještaju, dok je 2.8% bilo u privremenom 

smještaju, 1.1% u smještaju za izbjeglice i 0.3% je bilo ilegalno smješteno u tuđem 

posjedu. Međutim, procjena kvalitete i uvjeta za stanovanje u ovim stambenim jedinicama 

daje manje ružičastu sliku. Iz donje Tablice 4 vidimo da samo 24.6% domaćinstava ima 

dosta dobre uvjete stanovanja, što zajedno sa procentom domaćinstava koji stanuju 

u uvjetima prikladnim za življenje čini ukupno 85% domaćinstava da žive u općenito 

prikladnim stambenim uvjetima. Ostatak domaćinstava, oko 15%, živi u neprikladnim 

uvjetima, djelomično devastiranim ili devastiranim. 

Tablica 4. : Uvjeti stanovanja u Bosni i Hercegovini u 2004. godini (10) 

Uvjeti stanovanja : RS (%) FBiH (%) BiH (%) 

dosta dobri 20.6 28.1 24.6 

Prikladni za življenje 60.5 60.1 60.5 

Neprikladni za življenje 12.9 7.5 10 

Djelomično devastirani 2 1.6 1.8 

Devastirani 0.6 0.5 0.6 

U procesu rekonstrukcije 2.9 2.2 2.5 

Programi stambenog zbrinjavanja, u Republici Srpskoj fi nancirani od strane 

entiteta, a u Federaciji BiH najčešće od strane kantona, su u pravilu namijenjeni za 

boračku populaciju i ratne vojne invalide. Kao što se navodi u izvještaju Ombudsmena 

u BiH za 2009. godinu u Bosni i Hercegovini nisu poduzete adekvatne mjere u cilju 

uspostave sistema adekvatnog stanovanja, a izostala je i primjena preporuka UN 

komiteta za ekonomska, socijalna i kulturna prava prema kojim je država imala obavezu 

da usvoji na državnom nivou stambeni zakon i državnu stambenu strategiju kojima bi se 

rješavale stambene potrebe stanovništva. Komitet je također preporučio državi članici 

da dodijeli dovoljna sredstva za osiguravanje socijalnih stanova, posebno za osobe sa 


Hercegovini 

9 Living in Bosnia and Herzegovina; Panel Study, Wave 4; Birks, Sinclair and Associates adn IBHI; DIFD. 

citirano u „Social Protection and Social Inclusion in Bosnia and Herzegovina, st. 57 

10 Ibid. 

53


nižim primanjima, siromašne i marginalizirane grupe. 

Važno je navesti da izvještaj Ombudsmena u BiH za 2009.godinu navodi 

se da u Bosni i Hercegovini nije poduzeto dovoljno mjera na zaštiti životne okoline 

i osiguranja upravljanja javnim dobrima bez diskriminacije. Pitanje davanja javnih 

dobara na korištenje nije adekvatno uređeno zakonom što ostavlja mogućnost 

stvaranja povlaštenih pojedinaca i stvaranje korupcije. Ovo u ekonomsko-socijalnim 

smislu podiže i pitanje raspodjele nacionalnih bogatstava između svih građana. Praksa 

ukazuje na visoki stepen isključenosti žena i djece iz procesa odlučivanja o nacionalnim 

bogatstvima kao što su energetski sektor, vodeni potencijal, šume itd. Nadalje, u BiH 

ne postoji ekološka svijest kod građana o potrebi poduzimanja mjera za zaštitu prirode, 

a nisu uspostavljeni ni efi kasni programi u ovoj oblasti. Rezultat toga je i otežan pristup 

pitkoj vodi u nekim dijelovima države. 

3. Pravni okvir i primjenjivost propisa 


Hercegovini 

Europska konvencija za zaštitu ljudskih prava i temeljnih sloboda zajedno sa 

protokolima, čini sastavni dio Anexa IV Daytonskog mirovnog sporazuma koji predstavlja 

Ustav Bosne i Hercegovine. Od socio – ekonomskih prava tekstom Ustava (članak 3) 

zaštićeni su pravo na imovinu i pravo na obrazovanje, dok je u Aneksu I, Ustava, kao 

dodatni sporazum o ljudskim pravima koji će se primjenjivati u BiH naveden Međunarodni 

pakt o ekonomskim, socijalnim i kulturnim pravima. Oblast socijalne politike kojom se 

defi nira zaštita, pristup i osiguranje najznačajnijeg dijela socio-ekonomskih prava u 

svakoj zemlji, Ustavom BiH je dana u nadležnost entiteta. 

Ustav Federacije BiH u članku 2, garantira primjenu najvišeg nivoa međunarodno 

priznatih prava i sloboda utvrđenih aktima navedenim u aneksu, od koji su socijalnoekonomske 

prirode: zaštita obitelji i djece, zaštita imovine, obrazovanje, socijalna 

zaštita, zdravstvena zaštita, prehrana, utočište. Člancima 3. i 4. garantira se pravo 

svim izbjeglim i raseljenim licima pravo slobodnog povratka u prebivališta iz kojih su 

prognani, kao i pravo da im se vrati sva imovina oduzeta tijekom etničkog sukoba kao i 

nadoknada sve imovine koja im ne može biti vraćena. Također, sve izjave i obveze date 

i preuzete pod prisilom za vrijeme ratnog sukoba, posebno one koje se tiču odricanja 

od prava na zemlju i drugu imovinu, smatraju se ništavnim. Nadalje, Aneksom Ustava 

Federacije BiH navedene su Europska socijalna povelja iz 1961. i dopunski protokol 

kao i Međunarodni pakt o ekonomskim, socijalnim i kulturnim pravima kao instrumenti 

za zaštitu ljudskih prava koji imaju pravnu snagu ustavnih odredbi u ovom entitetu. 

Prema Ustavu Federacije BiH, socijalna politika je u podijeljenoj nadležnosti 

entiteta i kantona, što znači da Federacija BiH ne može donositi propise iz ove oblasti 

54


bez suglasnosti entiteta. Također, kantoni u Federaciji BiH, kojih ima 10, mogu u skladu 

sa svojim mogućnostima donositi posebne propise iz ove oblasti, koji mogu garantirati 

šira prava od prava defi niranih entitetskim propisima. 

Ustav Republike Srpske u svojim odredbama je eksplicitniji glede zaštite socio 

– ekonomskih prava. Tako je člankom 35. defi nirano pravo na zdravu životnu sredinu; 

člankom 36. propisana je posebna zaštita obitelji, majke i djeteta i posebna zaštita 

malodobnih osoba bez roditeljskog staranja; člankom 37. defi nirano je pravo na zaštitu 

zdravlja i pravo na zdravstvenu zaštitu, gdje djeca, trudnice i stare osobe imaju pravo 

na zdravstvenu zaštitu iz javnih prihoda; članak 38. garantira pravo na obrazovanje, 

i besplatno osnovno obrazovanje; članak 39. garantira pravo na rad; člankom 43. 

defi nirano je pravo na socijalnu sigurnost, socijalno osiguranje i socijalnu pomoć za 

građane koji su nesposobni za rad i nemaju sredstva za izdržavanje. Za razliku od 

Federacije BiH, oblast socijalne politike u Republici Srpskoj je u isključivoj nadležnosti 

entitetske razine vlasti. 

Pored ustavnih odredbi o pravu na rad defi niranih ustavom Republike Srpske 

i odredbama Međunarodnog pakta o ekonomskim, socijalnim i kulturnim pravima 

čije odredbe se prema Ustavu Federacije BiH trebaju primjenjivati, pravo na rad je 

defi nirano entitetskim propisima o radu. Međutim, uslijed problema uzrokovanih 

ratnom destrukcijom te ekonomskom tranzicijom, mnogim osobama radne životne 

dobi je uskraćeno pravo na rad. Zavodi za zapošljavanje, čiji posao bi trebao biti 

posredovanje u zapošljavanju, obrazovanje i prekvalifi kacija nezaposlenih radnika kako 

bi im se omogućilo stjecanje novih vještina i znanja, a sve u cilju lakšeg pronalaska 

novog zaposlenja, je svedena istključivo na evidenciju nezaposlenosti. Većina osoba 

prijavljenih na zavode za zapošljavanje to čine radi dobivanja zdravstvenog osiguranja 

i naknade za nezaposlenost koja je temporalnog karaktera. Država, zajedno sa ostalim 

razinama vlasti ne čini dovoljno na kreiranju novih radnih mjesta, niti na kreiranju 

uvjeta za razvoj poduzetntištva. S aspekta zadovoljenja prava na rad, najugroženije 

skupine predstavljaju mladi, žene, povratnici i nacionalne manjine kao što su Romi. 

Prema izvještaju Ombudsmena BiH za 2009. godinu, povratnicima je i dalje u pojedinim 

dijelovima BiH uskraćena mogućnost zapošljavanja, ili im nije na drugi način omogućeno 

ostvarivanje prihoda što direktno utječe na tok i brzinu povratka. 


Hercegovini 

Općenito, Bosna i Hercegovina u sastavu bivše države je imala dobro razvijen 

sustav socijalne zaštite čime su bila garantirana i osigurana većina socio – ekonomskih 

prava. Sadašnji sustav socijalnog osiguranja, kojim se osiguravaju rizici starosti, 

invalidnosti, nezaposlenosti i zdravstvenog osiguranja je defi niran posebnim propisima 

za svaku od ovih oblasti i temeljen je na bizmarkovskom principu, naslijeđenom iz bivšeg 

sustava, plaćanja doprinosa iz radnog odnosa. Kako su propisi iz oblasti socijalne 

55


politike u nadležnosti entiteta, tako različiti entitetski propisi defi niraju ovu oblast, gdje 

je osnovica na koju se plaća socijalno osiguranje različito defi nirana, različite su stope 

doprinosa, pa tako i visina prava. Primjerice, minimalna mirovina koja je u oba entiteta 

prema zakonima o mirovinskom i invalidskom osiguranju određena s ciljem zaštite 

najugroženijih umirovljenika u Republici Srpskoj iznosi 160KM dok u Federaciji BiH je 

u isplati 296KM. Glavne razlike glede organizacije i uređenja socijalnog osiguranja u 

entitetima nalazimo u oblasti zdravstvenog osiguranja i osiguranja za zaštitu majke i 

djeteta. Naime, doprinos za zaštitu djeteta u Republici Srpskoj predstavlja osiguranje iz 

radnog odnosa i plaća se po stopi od 2%, iz čega se isplaćuje puna naknade plaće za 

žene na porodiljskom dopustu. U Federaciji BiH ova vrsta doprinosa ne postoji i naknada 

plaće za vrijeme porodiljskog dopusta se isplaćuje prema propisima kantona, od kojih 

neki ovu vrstu naknade uopće ne isplaćuju. Prema općem propisu o radu, u Federaciji 

BiH poslodavac nije u obvezi isplaćivati plaću ženi koja je na porodiljskom dopustu, koji 

ona po zakonu ima pravo koristiti u razdoblju do godinu dana nakon poroda. Upravo 

iz razloga ne primanja naknade plaće tijekom porodiljskog odsustva, rijetke porodilje u 

Federaciji BiH se odlučuju koristiti porodiljsko odsustvo u dužem razdoblju. 


Hercegovini 

Oblast zdravstvenog osiguranja u Federaciji BiH je u nadležnosti kantona, tako 

da u ovom entitetu imamo 11 ministarstava zdravstva i 11 mirovinskih fondova (10 

kantonalnih ministarstava i fondova i jedan entitetski fond i entitetsko ministarstvo). 

Zdravstveno osiguranje se plaća prema mjestu prebivališta osiguranika. Najveći 

problem predstavlja neprenosivost osiguranja, tako da osoba koja radi u jednom 

kantonu a ima mjesto prebivališta u drugom, u mjestu rada nije zdravstveno osigurana, 

što znači da usluge zdravstvene zaštiti mora platiti kao da je potpuno neosigurana. 

Problem neprenosivosti zdravstvenog osiguranja postoji i između entiteta što posebno 

pogađa umirovljenike povratnike. 

Zdravstveno osiguranje je u oba entiteta koncipirano na bismarkovskim 

načelima, što znači da za svakog korisnika neko plaća doprinos. Osobe koje nisu u 

radnom odnosu mogu biti dobrovoljno osigurani; nezaposlenim osobama koji su na 

evidenciji zavoda za zapošljavanje i ispunjavaju uvjete, doprinos za zdravstveno 

osiguranje plaća zavod za zapošljavanje, umirovljenicima zdravstveno osiguranje plaća 

fond za mirovinsko osiguranje, dok socijalno ugroženim plaćaju centri za socijalni rad itd. 

Međutim, u oba entiteta imamo značajan broj osoba koje nisu pokrivene zdravstvenim 

osiguranjem i usluge liječenja moraju plaćati sami prema cjenovniku odobrenom od 

strane nadležnog ministarstva. Obzirom da je Bosna i Hercegovina zemlja u kojoj je 

pravo na rad uskraćeno mnogima i mnogi se teško snalaze da si osiguraju egzistencijalni 

minimum, plaćanje zdravstvenih usluga za ove građane predstavlja luksuz koji si ne 

mogu priuštiti. No, važno je spomenuti da prema entitetskim propisima o zdravstvenoj 

zaštiti, urgentna medicinska pomoć je besplatna i mora se osigurati svakom. 

56


Prema entitetskim zakonima, socijalna pomoć je namijenjena osobama koje 

zbog svog imovinskog stanja, nemogućnosti zaposlenja, invalidnosti i ostalog nemaju 

dovoljno sredstava za život. Socijalna pomoć se dijeli preko općinskih centara za 

socijalni rad. Ovaj segment socijalne zaštite je nedovoljno fi nanciran i neefi kasan u 

ciljanju socijalno ugroženih kategorija. Svjetska banka (2006.), procjenjuje da socijalni 

transferi dopru do svega jedne četvrtine siromašnih. Istim entitetskim propisima 

garantirana je novčana pomoć invalidnim osobama, koja se ostvaruje prema različitim 

kriterijima. U Federaciji BiH iznos ove naknade je dosta visok i iznosi od 90 do 400KM 

bez obzira na imovinsko stanje korisnika, dok u Republici Srpskoj ova naknada iznosi 

svega 40KM i daje se samo osobama čiji obiteljski prihodi ne prelaze imovinski prag. 

Prava na novčanu pomoć imaju i osobe registrirane kao civilne žrtve rata kod određenih 

nevladinih organizacija. Također, novčani iznos ovih naknada je znatno viši u Federaciji 

BiH nego u Republici Srpskoj. Prema izvještaju Ombudsmena BiH za 2009. godinu, 

diskriminirani su povratnici koji u Federaciji BiH imaju status civilne žrtve rata a vraćaju 

se u Republiku Srpsku. Ovo iz razloga što je relevantnim zakonom koji se primjenjuje u 

Federaciji BiH regulirano da prava po ovom osnovu imaju samo lica čije je prebivalište 

na teritoriji Federacije BiH, dok je zakonom u Republici Srpskoj propisano da prava 

civilne žrtve rata ne mogu ostvariti lica koja su po ovom osnovu ista u bilo kojem 

momentu ostvarivali u Federaciji BiH. 

Važno je spomenuti da naknade bivše boračke populacije su višestruko veće 

od naknada koje primaju ostale kategorije stanovništva. Tako većina proračunskih 

transfera odlazi na fi nanciranja prava demobiliziranih branitelja i boračke populacije, 

što je posebno slučaj u Federaciji BiH. U Federaciji BiH imamo dva zakona kojim je 

reguirana ova oblast dok je u Republici Srpskoj isto regulirano samo jednim propisom. 

4. Zaključak 


Hercegovini 

Unatoč, ustavnim i zakonskim odredbama kojim se garantiraju i štite socioekonomska 

prava, Bosna i Hercegovina je država gdje su mnogi uskraćeni za osnovna 

socio-ekonomska prava. Najugroženije skupine predstavljaju osobe starije životne dobi 

bez mirovinskih primanja, nezaposlene žene i omladina, djeca i ostali. Umirovljenici 

također predstavljaju ugroženu skupinu iz razloga što mnogima mirovina teško može 

pokriti osnovne životne potrebe. 

Entitetski sustavi socijalne zaštite na način kako su organizirani ne mogu 

osigurati zaštitu i osiguranje socio-ekonomskih prava cijelog stanovništva. Mnoge 

osobe u stanju socijalne ugroženosti nisu niti detektirane kao takve od strane nadležnih 

57


Hercegovini 


službi, dok osobe koje primaju neki oblik socijalne pomoći primaju različite iznose u 

ovisnosti od kantona ili entiteta u kom žive. 

Sustav socijalnog osiguranja je podijeljen po entitetskoj osnovi. Pored 

problema segmentiranosti, nije prilagođen novim uvjetima tržišta rada karakterističnim 

za post industrijska društva. Tako, osobe koje nisu u radnom odnosu nisu niti socijalno 

osigurane, što znači da nisu zdravstveno osigurani niti će u starosti moći ostvariti uvjete 

na mirovinu. 

Propise iz oblasti socijalne zaštite biti će neophodno harmonizirati na državnoj 

razini ili sporazumom između entiteta kako bi se izjednačile osnovice za plaćanje 

doprinosa i stope doprinosa za mirovinsko osiguranja, te izjednačila osnova prava 

socijalno ugroženih kategorija i time eliminirala postojeća diskriminacija u ovoj oblasti. 

Također, država i sve razine vlasti moraju učiniti više da se osobama koje nemaju 

nikakva primanja i žive na granici ili ispod granice siromaštva osiguraju osnovna socioekonomska 

prava, a to su: mogućnost rada ili socijalna pomoć, zdravstveno osiguranje, 

adekvatno stanovanje, i ostalo. 

58


Poglavlje II 

1. Međunarodni instrumenti za zaštitu socio-ekonomskih prava 

Osnovni međunarodni akti kojim se garantiraju socio-ekonomska prava 

su Međunarodni pakt o ekonomskim, socijalnim i kulturnim pravima kao i Europska 

socijalna povelja. To su pravo na rad i zapošljavanje (članak 6. MPESKP i članak 1. 

Povelje), pravo na socijalno osiguranje (članka 9. MPESKP i članci 12., 13., 14. i 23. 

Povelje), pravo na odgovarajući životni standard, što podrazumijeva odgovarajuću 

ishranu, odijevanje i stanovanje kao i stalno poboljšanje životnih uvjeta (članka 11. 

MPESKP), pravo na adekvatnu zdravstvenu zaštitu (članak 12. MPESKP, članci 11. 

i 13. Povelje), pravo na obrazovanje (članak 13. MPESKP), te preciznije defi nirana 

prava zaštite obitelji na socijalnu, pravnu i ekonomsku zaštitu (članak 16. Povelje), 

prava starih osoba na socijalnu zaštitu (članak 23. Povelje). 

Socio-ekonomska prava su koncipirana na način da država ima dužnost 

poštivati ih, štititi i ispunjavati. Dužnost poštivanja od države zahtjeva nemiješanje u 

individualne slobode pojedinca; dužnost zaštite podrazumijeva zaštitu prava svakog 

pojedinca, dok dužnost ispunjavanja od države zahtjeva da svakom pojedincu koji nije 

u mogućnosti svojim sopstvenim angažmanom sebi osigurati socio-ekonomska prava, 

osigura određeni minimum ovih prava. Dužnost države da svakom pojedincu osigura 

ili garantira određeni minimum predstavlja jedno od temeljnih socio-ekonomskih prava 

prema Međunarodnom paktu o ekonomskim, socijalnim i kulturnim pravima kao i 

Europskoj socijalnoj povelji. 

2. Primjena Europske socijalne povelje u BiH 

Europska socijalna povelja je najznačajniji dokument kojim se regulira 

ostvarivanje ekonomskih i socijalnih prava u okviru Europske unije i zemalja članica 

Vijeća Europe. Europska socijalna povelja kao temeljni europski dokument koji govori 

o socijalnim pravima potpisana je u Torinu 1961. godine, a stupila je na snagu 1965. 

godine. Nizom izmjena, pogotovu krajem 1980.ih i u 90-ima, dodana su nova prava te 

je preciziran mehanizam primjene i nadzora nad primjenom u zemljama potpisnicama. 

Riječ je o sljedećim dokumentima : Dodatni protokol Europskoj socijalnoj povelji (1988.), 

Protokol o izmjenama Europske socijalne povelje (1991.) i Dodatni protokol Europskoj 

socijalnoj povelji kojim se uspostavlja sustav kolektivnih žalbi (1995.). Novi dokument, 

tzv. izmijenjena ili revidirana Europska socijalna povelja, koja u sebi integrira donesene 

promjene te dodaje još osam prava potpisana je 1996. godine, a stupila je na snagu 

1999. godine. Tri su osnovne grupe prava koje štiti Povelja : 


Hercegovini 

59


1. prava na radnom mjestu 

2. posebna zaštita posebno ranjivih grupa 

3. univerzalna socijalna zaštita cijelog stanovništva 

Izmijenjena povelja štiti ukupno 31 temeljno pravo, od čega 9 sržnih : pravo na 

rad, pravo na organiziranje, pravo na kolektivno pregovaranje, pravo obitelji na socijalnu, 

pravnu i ekonomsku zaštitu, pravo radnika migranata i njihovih obitelji na zaštitu i 

pomoć, pravo na socijalnu sigurnost, pravo na socijalnu i medicinsku pomoć, pravo 

djece i mladeži na zaštitu, pravo na jednake mogućnosti i uvjete u svezi zaposlenja i 

struke, bez diskriminacije po spolu. Od devet sržnih, zemlje potpisnice trebaju prihvatiti 

najmanje 6 prava, odnosno ukupno najmanje 16 članaka ili 63 stavki. 

Bosna i Hercegovina je ratifi cirala Povelju 2008. godine, čime se obvezala 

na usklađivanje domaćeg zakonodavstva i prakse sa standardima predviđenim 

Poveljom. Primjena i zaštita prava defi niranih Poveljom predstavlja jedan od uvjeta 

koje Bosna i Hecegovina treba ispuniti u okviru procesa pridruživanja Europskoj uniji. 

Socio-ekonomska prava garantirana Poveljom koju je ratificirala Bosna i Hercegovina 

obuhvaćaju sljedeće odredbe: 

Član 1. - Pravo na rad 


Hercegovini 

S ciljem osiguranja djelotvornog korištenja prava na rad, zemlje potpisnice preuzimaju 

na sebe: 

1. da ako jedan od svojih primarnih ciljeva i odgovornosti prihvate ostvrivanje i 

održavanje najviišeg i najstabilnijeg mogućeg nivoa zaposlenosti, sa siljem 

postizanja pune zaposlenosti; 

2. da efi kasno zaštite pravo radnika da zarađuje za život u zanimanju koje 

slobodno odabere; 

3. da uspostavi ili odražava besplatne službe za zapošljavanje za sve radnike; 

4. da pruža ili promovira odgovarajuće stručno usmjeravanje, obuku i rehabilitaciju. 

Član 11. - Pravo na zdravstvenu zaštitu 

S ciljem osiguranja djelotvornog korištenja prava na zaštitu zdravlja, zemlje potpisnice 

preuzimaju obvezu da, bilo izravno ili u suradnji sa javnim ili privatnim organizacijama, 

poduzmu odgovarajuće mjere predviđene da, između ostaloga: 

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1. u najvećoj mjeri uklone slučajeve lošeg zdravlja; 

2. predvide savjetodavne ili obrazovne mogućnosti za promoviranje zdravlja i 

poticanje individualne odgovornosti u pitanjima zdravlja; 

3. spriječe, u najvećoj mogućoj mjeri epidemije, endemične i druge bolesti kao i 

nezgode. 

Član 12. - Pravo na socijalnu zaštitu 

S ciljem osiguranja djelotvornog korištenja prava na socijalnu zaštitu zemlje potpisnice 

preuzimaju obvezu da: 

1. uspostave ili održavaju sustav socijalne zaštite 

2. održavaju sistem socijalne zaštite na zadovoljavajućem nivou, koja je kao 

minimum jednaka onoj koja je potrebna za ratifi kaciju Europskog zakonika o 

socijalnoj sigurnosti. 

Član 13. - Pravo na socijalnu i medicinsku pomoć 

S ciljem osiguranja djelotvornog korištenja prava na socijalnu i medicinsku pomoć, 


1. osiguraju da svaka osoba koja ne raspolaže odgovarajućim resursima i koja 

nije u mogućnosti osigurati te resurse bili vlastitim naporima ili iz drugih izvora, 

posebno uživanjem shema socijalne zaštite, dobije odgovarajuću pomoć, i u 

slučaju bolesti, brige koja iziskuje njeno stanje; 


Hercegovini 

2. osigura da osobe koje primaju takvu pomoć neće iz tog razloga podnositi 

umanjenje svojih političkih i socijalnih prava; 

3. predvidi da svako može dobiti, preko odgovarajućih javnih i privatnih službi, 

savjete i osobnu pomoć koja im je eventualno potrebna da bi spriječili, otklonili, 

ili ublažili osobno ili obiteljsko siromaštvo. 

Član 14. - Pravo na korištenje službi socijalne zaštite 

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S ciljem osiguranja djelotvornog korištenja prava na korištenje službi socijalne zaštite 


1. promoviraju ili pružaju usluge koje, korištenjem metoda socijalnog rada, 

doprinose dobrobiti i razvitku i pojedinca i skupina unutar zajednice, i njihovo 

prilagođavanje socijalnom okruženju; 

2. potiče učešće pojedinaca i dobrovoljnih i drugih organizacija u uspostavljanju i 

održavanju takvih službi. 

Član 16. - Pravo obitelji na socijalnu, pravnu i ekonomsku zaštitu 

Sa ciljem osiguranja potrebnih uvjeta za puni razvoj obitelji, koja je osnovna jedinica 

društva, zemlje potpisnice preuzimaju obvezu da promoviraju ekonomsku, pravnu i 

socijalnu zaštitu obiteljskog života sredstvima kao što su socijalne i obiteljske naknade, 

fi skalni aranžmani, pružanje stanovanja za obitelji, benefi cije za mlade bračne parove, 

i druga odgovarajuća sredstva. 

Član 17. - Pravo djece i maldih na socijalnu, pravnu i ekonomsku zaštitu 


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S ciljem osiguranja djelotvornog korištenja prava djece i mladih da odrastu u okruženju 

koje podstiče puni razvoj njihove ličnosti i njihovih fi zičkih i mentalnih sposobnosti, 

zemlje potpisnice preuzimaju obvezu da, bili direktno ili u suradnji sa javnim i privatnim 

organizacijama, poduzmu sve odgovarajuće i potrebne mjere kreirane u cilju: 

1. a.) osiguranja da djeca i mladi, uvažavajući prava i obveze njihovih roditelja, 

imaju brigu, pomoć, obrazovanje i obuku koju trebaju, posebno predviđanjem 

osnivanja ili održavanja institucija i službi dovoljnih i adekvatnih za ovu svrhu; 

b.) zaštite djece i mladih od zanemarivanja, nasilja i iskorištavanja; 

c.) predviđanja zaštite i posebne pomoći od države za djecu i mlade osobe 

privremeno ili trajno uskraćene za pomoć njihove obitelji; 

2. omogućiti djeci i mladima besplatno osnovno i srednje obrazovanje, kao i 

poticati njihovo redovito pohađanje nastave. 

Član 20. - Pravo na jednake mogućnosti i jednak tretman u pitanjima zapošljavanja 

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i rada bez diskriminacije na osnovu spola 

S ciljem osiguranja djelotvornog korištenja prava na jednake mogućnosti i jednak 

tretman u pitanjima zapošljavanja i rada bez diskriminacije na osnovu spola, zemlje 

potpisnice preuzimaju obvezu da priznaju to pravo i preduzmu odgovarajuće mjere 

kojima će se osigurati odnosno promovirati njihova primjena na sljedećim oblastima: 

1. mogućnost zapošljavanja, zaštita od otpuštanja i profesionalna reintegracija; 

2. stručno usmjeravanje, obuka, prekvalifi kacija i rehabilitacija; 

3. uvjeti zapošljavanja i radni uvjeti, uključujući i nadoknadu; 

4. razvoj karijere koji podrazumijeva i unaprijeđenija. 

Član 23. - Pravo starih osoba na socijalnu zaštitu 

S ciljem osiguranja djelotvornog korištenja prava starih osoba na socijalnu zaštitu, 

zemlje potpisnice preuzimaju obvezu da usvoje ili podstaknu, direktno ili u suradnji sa 

javnim ili privatnim organizacijama, odgovarajuće mjere kreirane posebno s ciljem da: 

1. omoguće starim osobama da ostanu punopravni članovi društva što duže 

moguće putem: 

a.) adekvatnih materijalnih sredstava koja im omogućavaju da pristojno žive i 

aktivno sudjeluju u javnom, društvenom i kulturnom životu; 

b.) pružanjem informacija o uslugama i mogućnostima koja stoje na 

raspolaganju starijim osobama i mogućnostima njihovog korištenja; 


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2. omoguće starijim osobama da slobodno biraju stil života, i da vode neovisan 

život u svom obiteljskom okruženju sve dok to žele i mogu, putem: 

a.) pružanjem smještaja u skladu sa njihovim potrebama i zdravstvenim 

stanjem, ili adekvatne pomoći adaptiranjem njihovog stambenog smještaja: 

b.) zdravstvena zaštita i službe koje su im potrebne s obzirom na njihovo 

stanje; 

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3. garantiraju starijim osobama koja žive u ustanovama odgovarajuću podršku, uz 

puno poštivanje njihove privatnosti i učešće u odlučivanju o pitanjima koja se 

tiču životnih uvjeta u tim ustanovama. 

Bitno je naglasiti da Europska socijalna povelja u članku 12. o pravu na 

socijalnu zaštitu, točka 2. obavezuje države potpisnice da sustav socijalne zaštite 

održavaju na zadovoljavajućem nivou, garantirajući minimum defi niran Europskim 

zakonikom o socijalnoj sigurnosti. Ovaj dokument Vijeća Europe potpisan 1964. 

godine u Strasbourgu, predstavlja instrument Vijeća Europe namijenjen harmonizaciji 

zakonodavstva iz područja socijalne sigurnosti. Europski zakonik o socijalnoj sigurnosti 

izrađen je uz tehničku suradnju Međunarodnog ureda rada. On je koncipiran prema 

modelu Konvencije 102 o minimalnim standardima socijalne sigurnosti koja je u to 

vrijeme bila jedini konvencionalni instrument harmonizacije zakonodavstva koji se 

odnosio na cijelu socijalnu sigurnost. 

Premda se pokušavaju štititi, socijalna prava nisu temeljna ljudska prava te 

su mehanizmi zaštite slabiji, neodređeniji, posebice u smislu nepostojanja čvrstog 

sudskog mehanizma kao što je Europski sud za ljudska prava. Usprkos tome, širenje 

liste prava u 90-ima pratio je i pokušaj jasnijeg defi niranja nadzornog mehanizma. On 

izvorno počiva na tri stupnja : 


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1. Države same podnose izvješća o poštivanju koja procjenjuje Odbor nezavisnih 

stručnjaka. Taj Odbor donosi svoje negativne i pozitivne zaključke o poštivanju 

odrđenih članaka Povelje. 

2. Izvješća država i zaključci Odbora nezavisnih stručnjaka odlaze Odboru 

vlada, koje je sastavljeno od predstavnika pojedinih država i promatrača 

(međunarodne organizacije sindikata i poslodavaca). Ovaj Odbor priprema 

svoje izvješće za Odbor ministara. 

3. Odbor ministara donosi konačnu opću rezoluciju o poštivanju Povelje, kao što i 

donosi pojedinačne preporuke ugovornim strankama. 

Dodatni protokol o sustavu kolektivnih žalbi smanjio je relativnu važnost vladinih 

izvješća jer se ohrabruju socijalni partneri da samostalno podnose žalbe izravno Odboru 

nezavisnih stručnjaka. Tri su grupe organizacije koje podnose žalbe : 

1. međunarodne organizacije poslodavaca i zaposlenika koje imaju savjetodavni 

status pri Vijeću Europe ; 

2. međunarodne nevladine organizacije koje imaju savjetodavni statut pri Vijeću 

Europe te se nalaze na posebnoj listi Odbora vlada ; 

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3. reprezentativne nacionalne organizacije poslodavaca i zaposlenika. 

Mnogo je primjera koji svjedoče o tome da su zemlje članice Europe promijenile 

ili svoje zakonodavstvo ili praksu temeljem zaključaka Odbora nezavisnih stručnjaka, 

Odbora vlada i Odbora ministara. Time Europska socijalna povelja demonstrira svoju 

važnost i utjecaj premda, priroda socijalnih prava vodi k tome da su sankcije više 

moralne a ne materijalne. 

3. Primjena Međunarodnog pakta o ekonomskim, socijalnim i 

kulturnim pravima u BiH 

Odredbe Međunarodnog pakta o ekonomskim, socijalnim i kulturnim pravima koje 

se tiču socio-ekonomskih prava, uključuju sljedeće: 

Član 6. 

1. Države članice ovog pakta priznaju pravo na rad, koje obuhvaća pravo koje ima 

svako lice na mogućnost zarađivanja kroz slobodno izabran ili prihvaćen rad, i 

poduzimanju odgovarajuće mjere za očuvanje ovog prava. 

Među mjere koje svaka država članica ovog pakta treba da poduzme u cilju punog 

ostvarivana ovog prava spadaju programi tehničke i stručne orijentacije i obuke, politika 

i metodi za postizanje stalnog ekonomskog, socijalnog i kulturnog razvoja i pune 

proizvodne zaposlenosti u uvjetima koji čovjeku garantiraju uživanje osnovnih političkih 

i ekonomskih sloboda 


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Član 9. 

Države ugovornice ovog Pakta priznaju pravo svakog na socijalno obezbjeđenje, 

uključujući tu i socijalno osiguranje. 

Član 11. 

1. Države ugovornice ovog Pakta priznaju pravo svakog lica na životni standard 

dovoljan za njega i njegovu porodicu, podrazumijevajući tu i odgovarajuću 

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ishranu, odijevanje i stanovanje, kao i stalno poboljšanje životnih uvjeta. Države 

ugovornice će preduzeti cjelishodne mjere za obezbjeđivanje ostvarivanja 

ovog prava, priznajući u tu svrhu suštinsku važnost slobodno prihvaćene 

međunarodne suradnje. 

2. Države ugovornice ovog Pakta, priznajući svakome osnovno pravo da bude 

zaštićen od gladi, poduzeće pojedinačno i putem međunarodne suradnje 

potrebne mjere, uključujući tu i konkretne programe: 

a.) za poboljšanje metoda proizvodnje, očuvanja i raspodjele životnih 

namirnica punim korištenjem naučnih i tehničkih saznanja, širenjem znanja 

o načinima ishrane i razvitkom ili reformom agrarnih sustava na takav način 

da se postigne najpunije iskorištavanje i upotreba prirodnih izvora; 

b.) za osiguravanje pravične raspodjele svjetskih izvora hrane u odnosu na 

potrebe, vodeći računa o problemima koji se postavljaju kako u zemljama 

uvoznicama tako i u izvoznicima prehrambenih proizvoda. 

Član 12. 


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1. Države ugovornice ovog Pakta priznaju pravo svakog lica da uživa najbolje 

stanje fi zičkog i društvenog zdravlja koje može postići. 

2. Mjere koje će države ugovornice ovog Pakta poduzeti u cilju postizanja ovog 

prava moraju obuhvatiti mjere neophodne za: 

a.) Smanjenje broja mrtvorođenčadi i dječje smrtnosti, kao i zdravog razvoja 

djeteta; 

b.) Poboljšanje svih vidova industrijske higijene i higijene okoline 

c.) Sprečavanje i liječenje zaraznih, endemičnih, profesionalnih i drugih 

oboljenja, kao i borbe protiv tih bolesti; 

d.) Stvaranje pogodnih uvjeta za obezbjeđenje svima ljekarskih usluga i 

ljekarske njege u slučaju bolesti. 

Član 13. 

1. Države ugovornice ovog Pakta priznaju pravo svakog lica na obrazovanje. One 

su suglasne da obrazovanje treba biti usmjereno kao punom procvatu ljudske 

ličnosti i osjećanju njenog dostojanstva kao i da će jačati poštivanje ljudskih 

prava i osnovnih sloboda. One su također suglasne da obrazovanje mora 

omogućiti svakome da igra korisnu ulogu u slobodnom društvu, da unaprijedi 

razumijevanje, toleranciju, prijateljstvo među svim nacijama, svim rasnim, 

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etničkim ili vjerskim grupama i da pomogne razvoj djelatnosti Ujedinjenih 

naroda za očuvanje mira. 

2. Države ugovornice ovog Pakta priznaju da u cilju postizanja potpunog 

ostvarivanja ovog prava: 

a.) Osnovno obrazovanje mora biti obvezno, besplatno i dostupno svima; 

b.) Srednje obrazovanje u svojim raznim oblicima, uključujući tu i srednju, 

tehničku i stručnu nastavu, mora se učiniti općim i dostupnim svakomu 

putem svih odgovarajućih sredstava, a posebno postepenim uvođenjem 

besplatne nastave; 

c.) Više obrazovanje ima se učiniti podjednako dostupnim svakome prema 

njegovim sposobnostima putem svih odgovarajućih sredstava, a naročito 

uvođenjem besplatne nastave; 

d.) Osnovno obrazovanje treba da se potiče ili pojača koliko je god moguće za 

ona lica koja nisu uopće dobila osnovno obrazovanje ili ga nisu u potpunosti 

dovršila; 

e.) Aktivno će se nastojati na razvoju školske mreže na svim stupnjevima, 

ustanovljavati podesan sustav stipendija i neposredno poboljšati materijalni 

uvjeti nastavnog osoblja. 

3. Države ugovornice ovog Pakta obavezuju se poštivati slobodu roditelja, i 

u slučaju potrebe, zakonskih staratelja, da izaberu za svoju djecu druge 

obrazovne ustanove izvan onih koje je osnovala javna vlast, ali koje su u skladu 

s najnužnijim propisima koji mogu biti doneseni ili odobreni od strane države 

u oblasti obrazovanja radi osiguranja vjerskog i moralnog vaspitanja njihove 

djece u skladu sa njihovim vlastitim ubjeđenjem. 

4. Niti jednu odredbu ovog članka ne treba tumačiti na način da se ugrožava 

sloboda pojedinca i pravnih osoba da osnivaju i upravljaju obrazovnim 

ustanovama, ali uvijek pod uvjetom poštivanja načela iz stavka 1. ovog člana, 

te da obrazovanje koje se pruža u tim ustanovama bude u skladu sa najnužnijim 

propisima koje bi država mogla donijeti. 


Hercegovini 

Član 14. 

Svaka država ugovornica ovog Pakta, koja u trenutku pristupanja Paktu nije u mogućnosti 

osigurati na svojoj matičnoj teritoriji i li na drugim područjima pod svojom vlašću obveznu i 

besplatnu osnovnu nastavu, obavezuje se da u roku od dvije godine izradi i usvoji podroban 

plan neophodnih mjera za postupno ostvarivanje, u okviru razumnog broja godina utvrđenog 

ovim planom, punu primjenu načela obvezne i besplatne osnovne nastave za sve. 

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Prema članu 2 (1) Međunarodnog pakta o ekonomskim, socijalnim i kulturnim 

pravima države se obvezuju na postupno ostvarenje prava garantiranih paktom, na 

način da se država obvezuje „poduzeti korake, neovisno i preko međunarodne pomoći i 

suradnje, posebno ekonomske i tehničke, prema svojim maksimalnim mogućnostima, s 

namjerom postupne realizacije prava priznatih Paktom, koristeći sva prikladna sredstva 

a posebice poduzimanje legislativnih mjera“. Kako je ova odredba Pakta dosta nejasna 

i otvorena različitim interpretacijama, Komitet je ove nejasnoće klarificirao u Općem 

komentaru 3: 

„Koncept postupne realizacije u svojoj suštini predstavlja priznanje da puna realizacija 

ekonomskih, socijalnih i kulturnih prava se općenito ne može postići u kratkom vremenskom 

roku. Međutim, činjenica da se ova prava trebaju realizirati postupno ne bi smjelo biti 

pogrešno tumačeno na način da ova obveza ostane bez razumnog sadržaja. Ovo je s 

jedne strane instrument fleksibilnosti, koji reflektira realnosti stvarnoga svijeta i poteškoće 

s kojim se svaka zemlja sučeljava u osiguravanju pune realizacije ekonomskih, socijalnih 

i kulturnih prava. S druge strane, ova rečenica se mora čitati u svjetlu sveukupnog cilja, 

stvarnog raison d’etre samog Pakta, što predstavlja obvezu pune realizacije prava 

garantiranih Međunarodnim paktom. To znači da države imaju obvezu ići prema tom cilju 

što brže i efikasnije“ (11) . 


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Bez obzira na pojašnjenja Općeg komentara 3 u klarificiranju dužnosti progresivne 

i postupne realizacije prava, ovaj koncept se pokazao suviše općenitim kako bi omogućio 

procjenu da li država ispunjava svoje obveze u danoj situaciji, te da li su poduzete sve 

adekvatne mjere i iskorištena sva sredstva. U ovom slučaju je izuzetno teško procijeniti 

koliko se država pridržava odredaba Pakta i poduzima mjere za progresivnu i postupnu 

realizaciju ciljeva što uključuje potrebu za razvojem standarda za svako od prava glede 

socijalnog razvoja, danih resursa u kontekstu svake zemlje, a uzimajući u obzir složenost 

i poteškoće u uspostavljanju pouzdanih i preciznih indikatora kako bi se ocijenilo da li su 

ovi standardi osigurani i ispitala moguća alternativna djelovanja od strane države. 

Također, u Općim komentarima 3 države su obvezne „osigurati zadovoljavanje 

minimalne razine prava“. Nadalje, svaka država u kojoj značajan broj osoba nema 

mogućnost zadovoljiti osnovna prava na hranu, zdravstvenu zaštitu, osnovni smještaj, 

ili osnovno obrazovanje, može se reći da ta zemlje prima facie ne ispunjava svoje 

obveze prema Međunarodnom paktu (12) . Sadržaj minimuma prava služi kao minimalna 

donja granica koja važi za sve osobe u svim situacijama. Sadrži neophodne, ali ne i 

dovoljnu sadržinu obveza prema Međunarodnom paktu, jer je neophodno da države teže 

progresivno prema punoj realizaciji svih socijalnih i ekonomskih prava. 

11 Committee of Economic, Social and Cultural Rights, General Comment 3, para. 9 

12 Ibidum, para. 10 

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Obveza svake države sadrži dužnost da postupno i progresivno ostvari punu realizaciju 

prava, i obvezu da osigura svim svojim građanima uživanje minimuma osnovnih prava. 

Usto, obveza svake države je da odmah osigura i garantira prava garantirana Paktom 

bez diskriminacije. 

Međutim, nerazvijeni mehanizmi provjere primjene ekonomskih i socijalnih prava 

kao rezultat imaju slabe međunarodne mehanizme monitoringa. Također, iz Općeg 

pregleda vidimo da Bosna i Hercegovina ne ispunjava većinu svojih obveza prema 

Međunarodnom paktu. 

4. Kako naprijed? 

S aspekta ispunjenja obveza, odnosno prava garantiranih Europskom socijalnom 

poveljom i Međunarodnim paktom o ekonomskim, socijalnim i kulturnim pravima, obveza 

leži na državi potpisnici, što znači da je način na koji će se ova prava ispuniti u isključivoj 

brizi svake države. To znači da svaka država za sebe određuje modele socijalne zaštite na 

način kako to najbolje odgovara njenom političko državnom uređenju, tradiciji, specifičnim 

problemima koji opterećuju zemlju, te odabranim političkim ciljevima i ostalome. 

Obzirom da je Bosna i Hercegovina u upravno administrativnom smislu složena 

država sa podijeljenim nadležnostima vezanim za oblast socio-ekonomskih prava, 

neophodna je bolja koordinacija različitih razina vlasti u oblasti socijalne politike kako bi 

se harmonizirali propisi i otklonila diskriminacija korisnika različitih segmenata socijalne 

zaštite u zemlji i uočile nedosljednosti i propusti u ovoj oblasti. Za uspostavljanje ove 

koordinacije je u prvom redu potrebna politička volja i opredjeljenost političke elite za 

ispunjavanje obveza preuzetih potpisivanjem i ratificiranjem međunarodnih pravnih 

akata, kao što su Međunarodnih pakt o ekonomskih i socijalnim pravima kao i Europska 

socijalna povelja, ali isto tako i ustavne odredbe kako entiteta tako i države kako iste ne 

bi bile samo mrtvo slovo na papiru. 


Hercegovini 

Osnovni problem za ispunjavanje osnovnih socio-ekonomskih prava predstavlja 

niska razina ekonomske aktivnosti u zemlji i izuzetno visok stupanj nezaposlenosti. 

Komitet ESKP je već apelirao na Bosnu i Hercegovinu da pojača svoje napore u 

borbi protiv nezaposlenosti kroz posebno ciljane programe, uključujući programe 

usmjerene ka smanjenju nezaposlenosti među mladima, ženama, posebno nositeljicama 

domaćinstava, kao i nezaposlenosti među siromašnim i marginaliziranim grupama (13) . 

13 E/C.12/BIH/CO/1, Zaključne napomene Komiteta o ekonomskim, socijalnim i kulturnim pravima, tačka 35. 

69


Komitet je također izrazio zabrinutost zbog male zastupljenosti etničkih manjina, posebno 

Roma, na tržištu rada (član 5(e)(i)), zbog čega je preporučio državi članici da 

poboljša upošljavanje etničkih manjina, a posebno Roma, u javnom i privatnom 

sektoru, kroz implementiranje strategija koje će obučavati i kvalificirati takve 

osobe za poslove na tržištu rada, dajući poticaj poslodavcima za upošljavanje 

takvih osoba, i uspostavljanje nezavisnog mehanizma na državnom nivou kako bi 

se adresirala diskriminacija pri upošljavanju i promociji u javnom i privatnom sektoru 

zapošljavanja/rada. 


Hercegovini 

Niska razina zaposlenosti za posljedicu ima fi nancijsku neodrživost sustava 

socijalnog osiguranja, za koji će da bi se u budućnosti održao biti potrebno proračunsko 

fi nanciranje. No, to je samo jedan dio problema. Poznato je da su mnogi u Bosni i 

Hercegovini, pored prava na rad uskraćeni za zdravstvenu zaštitu, obrazovanje, imaju 

problem stanovanja i druge probleme egzistencijalne prirode, što znači da su uskraćeni 

za socio-ekonomska prava. Država, odnosno nadležne razine vlasti ne čine dovoljno 

kako bi se ove kategorije identifi cirale kao i njihove potrebe. Centri za socijalni rad, 

institucije na općinskoj razini naslijeđene iz prošlog sustava, su još uvijek nadležne 

za ovaj posao. Jačanje centara za socijalni rad u budućnosti kroz obuku kadrova te 

materijalnu i tehničku opremljenost je neophodno za ispunjavanje ove funkcije. 

Vertikalna i horizontalna povezanost i koordinacija institucija sa svih razina 

vlasti je neophodna u cilju ispunjenja zadataka preuzetih Poveljom i Međunarodnim 

paktom. 

5. Zaključak 

Odredbe Međunarodnog pakta o ekonomskim, socijalnim i kulturnim pravima, 

i odredbe Europske socijalne povelje nude sadržajnu zaštitu socio-ekonomskih prava. 

Mnoge zemlje su harmonizirale svoje zakonodavstvo u skladu sa njihovim odredbama 

i time doprinijele rastu životnog standarda svojih stanovnika, socijalnoj inkluziji i 

razvoju demokracije. Usklađivanje zakonodavstva i njihova primjena sa ovim važnim 

međunarodnim aktima nosi sa sobom ne samo međunarodno priznanje koje zemlju 

svrstava u red civilizirani društava, nego legitimira državu u očima njenih građana. 

Socio-ekonomska prava se ne mogu ispuniti preko noći. Njihovo ispunjenje 

mora teći postupno i progresivno, što je i predviđeno odredbama Međunarodnog pakta 

o ekonomskim, socijalnim i kulturnim pravima. No, svaka država može odmah poduzeti 

niz mjera, posebno legislativne prirode s ciljem uspostavljanja adekvatnog sustava, 

kojim će se osigurati socio-ekonomska prava širih kategorija stanovništva, a posebno 

onih kategorija koji nisu u mogućnosti svojim radom ili angažiranjem sebi obezbjediti 

70


minimum socijalnih prava. Važno je da ove mjere, odnosno zakoni, ne smiju biti planirani 

na način da stvaraju diskriminaciju među osobama istog socio-ekonomskog statusa. 

Odnosno, ove mjere moraju pomoći da se društvene nejednakosti smanje, kreirajući 

društvo jednakih šansi. 


Hercegovini 

71


Poglavlje III 

Konačni zaključci i preporuke 

Unatoč međunarodno preuzetim obvezama koje proizilaze ratifi ciranjem 

Međunarodnog pakta o ekonomskim, socijalnim i kulturnim pravima kao i ratifi ciranjem 

Europske socijalne povelje, država Bosna i Hercegovina niti njeni entiteti ne čine 

dovoljno na garantiranju, zaštiti i ispunjavanju socio-ekonomskih prava garantiranih 

ovim međunarodnim aktima. 

Također, unatoč preuzetim međunarodnim obvezama Bosna i Hercegovina 

svakim danom sve više postaje zemlja izražene nejednakosti unutar društva gdje 

mnogi postaju uskraćeni za osnovna socio-ekonomska prava. Mreža socijalne zaštite 

naslijeđena iz bivšeg sustava i sada podijeljena prema entitetskim granicama a unutar 

Federacije BiH i prema administrativno upravnim granicama kantona, je uzrok dodatnih 

nejednakosti između kategorija stanovništva. Ovo je posebno slučaj sa zdravstvenom 

zaštitom, mirovinskim osiguranjem, naknadama za invalide, civilne žrtve rata i ostalome. 


Hercegovini 

Sustav socijalnog osiguranja kojim su obuhvaćeni rizici starosti, invalidnosti, 

zdravstvenog osiguranja, osiguranja za nezaposlenost koji funkcioniraju prema 

naslijeđenim bismarkovskim načelima osiguranja temeljenom na radu, odnosno radnom 

odnosu, ne može osigurati adekvatnu zaštitu i obuhvatnost širih kategorija stanovništva. 

Glavni razlog leži u činjenici što relativno mali broj osoba radno sposobnog stanovništva 

ima zaposlenje, što podrazumijeva da su socijalno osigurani. Drugi, problem leži u 

činjenici što bosansko-hercegovačko tržište rada, pored ogromnog broja zaposlenih u 

sivoj ekonomiji, sve više karakterizira privremeni i povremeni rad i drugi novi oblici rada 

karakteristični za post industrijsko društvo. Oblast socijalnog osiguranja treba prilagoditi 

ovim novim oblicima rada i naći načina da se osobe zaposlene u sivoj ekonomiji također 

obuhvate socijalnim osiguranjm, prvenstveno zdravstvenom zaštitom. 

Adekvatnu zaštitu prava socijalno ugroženih kategorija stanovništva najlakše 

je osigurati prema modelu harmonizirane decentralizacije. Centri za socijalni rad, 

naslijeđeni iz bivšeg stava, su nadležni za identifi ciranja i pomoć socijalno ugroženih 

kategorija, no njihova sposobnost i uspješnost u obavljanju ovog posla prvenstveno 

ovisi o ekonomskoj moći općine u kojoj se nalaze kao i od sposobnosti i senzibiliziranosti 

radnog osoblja, kao i pozitivnih propisa u danom kantonu ili entitetu. Centre za 

socijalni rad bit će neophodno dodatno kadrovski osposobiti i uložiti sredstva u njihovu 

informatičku i materijalnu opremljenost kako bi mogli odgovoriti izazovima ovoga posla. 

No, s druge strane, harmoniziranje propisa u ovoj oblasti je neophodno kako bi se 

eliminirala sadašnja diskriminacija korisnika u ovisnosti o mjestu prebivališta. Zakoni 

72


na entitetskoj razini moraju biti harmonizirani i garantirati minimum prava i u skladu sa 

odredbama Europske socijalne povelje i Međunarodnog pakta o socijalnim, ekonomskim 

i kulturnim pravima, kao i ostalim ratifi ciranim međunarodnim pravnim aktima. 

Horizontalna i vertikalna koordinacija svih razina vlasti nadležnih za oblast 

socijalne politike je neophodna kako bi se harmonizirali politika i propisi u ovoj oblasti, 

identifi cirale slabosti i propusti te iznašao najadekvatniji model garantiranja, zaštite i 

osiguravanja socio-ekonomskih prava u zemlji. Svaka razina vlasti u Bosni i Hercegovini 

u budućnosti mora učiniti puno više kako bi se ispunili ovi ciljevi. 

Jedna od obveza preuzeta ratifi ciranjem Europske socijalne povelje i 

Međunarodnog pakta o ekonomskim, socijalnim i kulturnim pravima predstavlja 

redovito izvještavanje u ispunjenju preuzetih obveza. U tom smislu, nadležna državna 

ministarstva zadužena za ovu oblast, kao i nadležna entitetska ministarstva koja 

također imaju jedan dio obveza po ovom pitanju, potrebno je dodatno educirati kako bi 

se ove obveze redovno ispunjavale i osigurala adekvatna komunikacija sa nadležnim 

međunarodnim komisijama. Općenito, bolja međunarodna suradnja u ovoj oblasti 

može osigurati razmjenu iskustava i transfer znanja, čime se oblast socijalne politike, 

odnosno zaštita, garantiranje i osiguravanje socio-ekonomskih prava, mogu značajno 

unaprijediti. 


Hercegovini 

73


Literatura: 


Hercegovini 

- Federalni zavod za statistiku, Agencija za statistiku Bosne i Hercegovine i 

Republički zavod za statistiku RS: Living Standard Measurement Survey 

(2001). Uzeto sa mrežne stranice Federalnog zavoda za statistiku: http://www. 

fzs.ba/Eng/lsmse.htm 

- Europska socijalna povelja 

- Eurposka komisija (2009), Social Protection and Social Inclusion in Bosnia and 

Herzegovina 2008. 

- Committee of Economic, Social and Cultural Rights, General Comment 3. 

Preuzeto 01.12.2009. sa mrežne stranice: http://shr.aaas.org/thesaurus/ 

instrument.php?insid=26 

- Centar za ljudska prava Univerziteta u Sarajevu (2009): Ljudska prava u 

Bosni i Hercegovin: Pravo, praksa i međunarodni standardi ljudskih prava sa 

ispitivanjem javnog mnijenja. Preuzeto (07.12.2009) sa mrežne stranice : http:// 

www.hrc.unsa.ba/hrr2008/PDFS/ljudskapravaubih2008.pdf 

- Međunarodni pakt o ekonomskim, socijalnim i kulturnim pravima 

- Ombudsmen za ljudska prava u Bosni i Hercegovini (2009): Univerzalni 

periodični pregled stanja ljudskih prava u Bosni i Hercegovini. Preuzeto 

(07.12.2009) sa mrežne stranice: http://www.ombudsmen.gov.ba/materijali/ 

UPR%20bosnian%20language.pdf 

- Ustav Bosne i Hercegovine 

- Ustav Federacije BiH. 

- Ustav Republike Srpske. Preuzeto (07.12.2009.) sa mrežne stranice Skupštine 

Brčko distrikta: http://skupstinabd.ba/ustavi/rs/ustav_hrvatski.pdf 

- World Bank BiH (2005). Bosnia and Hercegovina Labour Market Update: The 

Role of Industrial Relations. Preuzeto sa mrežne stranice Ureda Svjetske 

banke u BiH: www.worldbank.ba 

- World Bank (2006): Bosnia and Herzegovina – Fiscal Chalanges and 

Strengthening Perspectives for Growth: Review of Public Expenditures and 

Institution. Preuzeto sa mrežne stranice Svjetske banke u BiH: www.worldbank. 

ba 

74

FOREWORD 

This publication shall be considered an advocacy tool to promote access to 

economic and social rights and make both civil society and central/local institutions 

aware of the need for an adequate regulatory framework that guarantees adequate 

development and protection of fundamental rights in Bosnia-Herzegovina. 

The legal studies hereby presented have been elaborated under the framework 

of the projects “Access to Labor Rights in Balkans from a Regional Perspective” and 

“Restitution of Rights for Peace Building in Balkans” funded by the Distinguished Madrid 

Chamber of Advocates (Spain) and the Spanish Agency for International Cooperation 

and Development respectively. Funds for the publication and its presentation were also 

provided by the University of Cantabria (Spain) offering a valuable contribution by this 

renowned academic institution. 

In addition to the publication, both projects also comprised activities related to 

the provision of primary and secondary free legal aid services to vulnerable citizens 

aimed at facilitating their access to justice with particular attention paid to rights of an 

economic and social nature. Said services fall within the scope of the project “Increase 

in the economic and social capacities, and strengthening productive material and 

inclusion in the labour market, especially attending vulnerable communities” funded by 

the Spanish Agency for International Cooperation and Development and implemented 

by MPDL-Movement for Peace through its local partner NGO Initiative for Development 

and Cooperation (IDC) Bosnia and Herzegovina. 

The assessment of the level of compliance of Bosnia-Herzegovina domestic 

legislation and practices with the applicable international standards refl ected on both 

legal studies has been conducted by Mrs. Nikolina Obradovic, expert in economic and 

social rights, with the assistance of Mrs. Aida Tanovic and Mrs. Mira Popadic, legal 

advisers of IDC Bosnia and Herzegovina. 

The author used a comparative approach being acutely aware of the depth and 

breadth of the obstacles faced by those who do not enjoy full access to economic and 

social rights with a view to highlight the defi ciencies of the legislative framework and to 

make the corresponding recommendations. 

The present publication is addressed to national and international organisations, 

researchers, legal professionals, trade unions and public authorities. The study may 

also be of interest for the general public, due to the fact that it enables to develop a 

more complete picture of the current legal situation in BaH concerning labour and socioeconomic 

rights. 

Mikel Córdoba Gavín 

MPDL Head of Mission South Eastern Europe 

Salvador Bustamante Aragonés 

MPDL Project Coordinator Bosnia-Herzegovina

Content: 

Summary 5 

Labour rights study in Bosnia and Herzegovina 

Introduction 9 

Chapter I 11 

1. General overview 11 

2. Current condition of labor legislation in BaH 12 

a. Objections 14 

b. Applicability 16 

c. Role of Internal and External Actors 21 

Chapter II 23 

1. International mechanisms 23 

2. Infl uence of international organizations / mechanisms 29 

3. Relations between domestic and international actors with regard to 

establish ing a legal framework of labor legislation 30 

4. Harmonization with international standards, especially with the ILO 

practice on provisions of ILO conventions 32 

Chapter III Final Conclusions and recommendations 35 

Bibliography 37 

Addendum I 38 

Socio – economic rights study in Bosnia and Herzegovina 

Introduction 43 

Chapter I 45 

1. General overview 45 

2. Current situation regarding socio – economic rights in BaH 45 

3. Legal framework and applicability of provisions 52 

4. Conclusion 56 

Chapter II 57 

1. International instruments for the protection of socio-economic rights 57 

2. Implementation of European Social Charter in BaH 57 

3. Implementation of the International pact on economic, social and 

cultural rights in BaH 63 

4. How to make progress? 67 

5. Conclusion 69 

Chapter III Final Conclusions and recommendations 70 

Bibliography 72

Summary 

The problems of labor and socio-economic rights are one of the most urgent 

topics in Bosnia and Herzegovina. Frequent workers’ strikes, pensioners’ problems, 

protests of various groups in order to realize their labor and socio-economic rights are 

the markers of our quotidian. 

Legal experts of the ‘Initiative for development and cooperation’ work every 

day to assist those who are fi ghting to realize their labor and socio-economic rights. 

The writing of this study has been precisely based on a rich practical experience of this 

organization’s legal experts. 

Upon ratifi cation of the International pact on economic, social and cultural rights, 

the Revised European Social Charter and certain International Labor Organization’s 

conventions, the implementation, assurance of realization, and protection of labor and 

socio-economic rights have become Bosnia and Herzegovina’s obligations pertaining 

to all state levels. The goal of these studies is to inform all interested parties about 

international standards in the area of labor and socio-economic rights that Bosnia and 

Herzegovina has been obliged to implement and strive for. In addition, it also provides 

information about the existing shortcomings at the state level with regard to assurance 

and protection of these rights. 

One of the basic prerequisites of an adequate level of implementation and 

protection of labor and socio-economic rights in any society is better informedness of 

all citizens about these rights. Therefore the studies aim to give a general overview 

of the labor, labor relations and socio-economic rights legislation by identifying 

the most frequent problems in the implementation as well as shortcomings in the 

existing legislation especially regarding its harmonization with relevant international 

instruments. The reader will also fi nd in them relevant provisions pertaining to protection 

of labor and socio-economic rights from the Revised European Social Charter and the 

International pact on economic, social and cultural rights that Bosnia and Herzegovina 

has been obliged to implement. Moreover, the studies contain the explanation note 

on the international mechanisms of supervision, the manner of implementation of the 

international legal acts and the rest. 

A better implementation of law begins with a better informedness of all of us. 


Socio-economic expert 

5


Introduction 

The term labor law implies a code of norms and legal acts pertinent to the 

regulation of labor and labor relationships. Aside from the national labor law, the 

international labor law is also greatly signifi cant for every country. The general 

foundations of the international labor law have been premised on the principles of 

universal peace, improvement of economic and social development, and the idea of 

social justice. 

The most signifi cant and the most numerous acts of the international labor 

law are conventions and recommendations of the International Labor Organization 

(ILO), most of which Bosnia and Herzegovina (BaH) ratified in 1993 (1) . Also, important 

provisions of the labor law are contained in the International pact on social, economic 

and cultural rights, which was ratifi ed by Bosnia and Herzegovina immediately after it 

had proclaimed independence on March 6th 1992. In addition to this, as a member of the 

Council of Europe, on October 7th 2008, Bosnia and Herzegovina ratifi ed the revised 

European social charter, which is a fundamental legal instrument of this institution and 

whose provisions are important for regulation of labor and labor relationships of every 

signatory state. 

Labour rights study in Bosnia and 

Herzegovina 

By signing and ratifying these documents, Bosnia and Herzegovina has 

committed to harmonize its domestic (national) legislation and practice with the 

standards defi ned by these documents. Implementation, assurance that rights are 

exercised and protected in accordance with these international norms presents one of 

the conditions in the process of the EU accession. 

1 See Addendum I, relevant ILO Conventions ratifi ed by Bosnia and Herzegovina. 

9


Chapter I 

1. General overview 

The issue of labor law primarily implies exercising rights of a person who are 

in a labor relationship with their employer or have signed contracts with a specifi c 

employer or company. Workers, who are contractually bound to a specifi c employer, 

are generally considered to have already been exercising their rights to a great extent 

in contrast to those who work illicitly or have not been reported by their employer and by 

virtue of that are denied basic rights regarding pensioners’ and health insurance, right 

to paid vacation, right to paid sick leave etc. 

Due to the problems cause by war destruction, economic transition, disputable 

and ineffi cient privatization, BaH has a very low employment rate and a huge number of 

offi cially unemployed workers which formal economy is still incapable of absorbing. In 

the table below we see that only 36% of the estimated number of working age population 

in Republika Srpska is employed while in the BaH Federation this percentage is 22%, 

which is a very low employment rate of working population. 


Herzegovina 

Table 1: General indicators of the labor market in BaH 2005 – 2008 

2005 2006 2007 2008 X-2009 

Population 15 – 64 

FBaH* 

1.576.172 1.578.223 1.580.494 1.580.494 1.579.827 

Population 15 – 64 

RS** 

- 760.000 762.000 717.000 717.000 

Number of employed 

people in BaH 

644.516 654.252 669.652 689.950 - 

- Federation of BaH 388.413 389.601 413.676 430.745 425.873 


Number of unemployed 

people in *** 

508.039 524.839 515.746 483.121 - 

- Federation of BaH 347.478 362.368 367.570 345.381 351.444 


Active population in 

BaH 

1.152.555 1.179.091 1.185.401 1.173.071 - 

- Active pop. FBaH 735.891 751.969 781.246 776.126 777.317 

- Active pop. RS 384.955 392.245 392.443 392.279 

Activity rate in FBaH 0,46 0,47 0,49 0,49 0,49 

11



Herzegovina 

Activity rate in RS-u - 0,51 0,51 0,55 

Employment rate in 

FBaH 

0,24 0,24 0,26 0,27 0.27 

Employment rate in 

RS 

- 0,32 0,33 0,36 

Unemployment rate 

in FBaH 

0,22 0,23 0,23 0,22 0.22 

Unemployment rate 

in RS 

0,19 0,17 0,18 

*Estimate of the Federation of BaH Statistics Institute 

** Estimate of the Labor force survey 

*** Data are inclusive of Brčko district data 

Source: Agency for labor and employment of BaH, Agency for statistics of FBaH, RS 

Republic statistics institute, Labor force survey (2008) and own calculations. 

Aside from a low employment rate and high unemployment rate (see Table 1), 

BaH has a very low rate of population activity, which, in the BaH Federation is around 

49% and in Republika Srpska 55%. Low activity rate is one of the main indicators of the 

high employment rate in the grey economy. It is needless to emphasize that workers 

who are employed in informal or grey economy are denied basic labor rights, are mostly 

exposed to exploitation and bad work conditions. World Bank (2005), based on the 

LSMS survey, estimates that grey economy employment is around 37% of the total 

employment in 2001 and 40% in 2002. Tongson and Yemtsov’s (2005) study shows that 

the percentage of those employed in informal economy between 2001-2004 increased 

from 37% to 42%. So, every conducted research is indicative of an extremely high 

share of grey economy and illicit work in BaH. 

Taking into account the aforementioned, it is not surprising that employees 

have a great deal of troubles on an everyday basis when it comes to protection and 

exercise of the rights stemming from their labor relationships. On the other, the relict 

of the ‘fi rst and only employment without ever getting fi red’ from the previous system is 

still present in BaH presenting an obstacle for understanding of rights and obligations 

especially with the employed and those looking for an employment. 

2. Current condition of labor legislation in BaH 

BaH is a complex country that was divided into two entities by the Dayton peace 

agreement: Federation of BaH and Republika Srpska and Brčko district. According with 

the Annex IV of the Dayton peace agreement, which is also the constitution of BaH, 

social policy and labor legislation are entity matters. In the BaH Federation, according 

to its constitution, this area is in the joint jurisdiction of the entity and cantonal levels 

12


of authority. Therefore the area of labor legislation has been defi ned by the entity 

regulations. 

In the Federation of BaH, regulations pertaining to labor legislation include: 

• BaH Federation Labor law (Offi cial gazette of the BaH Federation 43/99, 32/00, 

29/03) 

• General collective agreement for the territory of BaH Federation (Offi cial gazette of 

the BaH Federation, number 54/05) 

• Law on workers’ council (Offi cial gazette of the BaH Federation number 38/04), 

• Law on strike (Offi cial gazette of the BaH Federation 14/00), 

• Law on employment of foreigners (Offi cial gazette of the BaH Federation 8/99), 

• Law on employment mediation and social insurance of unemployed people (Offi cial 

gazette of the BaH Federation 55 /00, 41/01, 22/05, 09/08), 

• Law on safety at work (Official Gazette of the Socialist Republic of BaH number 

22/90) 

In Republika Srpska (RS), the area of labor legislation has been defi ned by: 


Herzegovina 

• RS Labor law from 2000 (the fi nal draft – Offi cial gazette of the Republika Srpska, 

number 55/07), 

• General collective agreement of the RS (Offi cial gazette of the RS number: 27/06 

and 31/06), 

• Law on workers’ councils (Offi cial gazette of the Republika Srpska, number: 26/01), 

• Law on employment (Official gazette of the Republika Srpska, number: 54/05 and 

64/06), 

• Law on safety at work (Offi cial gazette of the Republika Srpska, number: 1/08), 

• Law on strike, (Offi cial gazette of the Republika Srpska, number: 10/98), 

• Law on employment of foreigners and persons without citizenship (Offi cial gazette 

of the Republika Srpska, number: 97/04, 96/05 i 123/06), 

• Law on professional rehabilitation and employment of the disabled (Offi cial gazette 

of the Republika Srpska, number: 98/04 and 91/06). 

In Brčko district, the area of labor legislation has been regulated by the following acts: 

• Brčko District Labor law (Brčko District (BD) Offi cial gazette, number 19/06, 19/07 

and 25/08), 

• Law on safety at work (BD Offi cial gazette, number 31/05 and 35/05), 

• Law on employment and rights during unemployment (BD Official gazette, number 

33/04, 19/07 i 25/08), 

13


• Law on employment of foreigners (BD Offi cial gazette, number 15/09 and 19/09) 

a. Objections 


Herzegovina 

According to the general provisions on labor in both entities, the collective 

agreement, labor by-laws, or labor contract, no lesser rights than those defi ned by the 

general provisions can be established, except if it is not explicitly stipulated by the same 

provisions or some other legislative provision. Upon the entity labor law amendments in 

the fall of 2000, and upon the passing of the new Labor law of Republika Srpska, more 

liberal provisions were introduced in order to establish a more fl exible labor market. 

Current BaH legislation on protection of employment as well as provisions on temporary 

work contracts are in some cases more liberal than provisions in many EU countries. 

As stated in the Initial report on implementation of the International pact on economic, 

social and cultural rights from January 2004, BaH employers are now faced with fewer 

procedural diffi culties and they have similar, if not smaller, fi ring costs in the sense of 

notice period length as well as severance pay. All this has been done in order to create 

a more favorable environment for the private sector development which was at the 

expense of workers’ rights. On the other hand, high taxes and contributions increasing 

the labor costs and pushing many entrepreneurs into grey economy remained intact. 

Current Labor law of the BaH Federation brought in 1999, has, since then, suffered 

signifi cant changes and amendments. The 2000 Labor law amendments erased 

provisions related to signing of written labor contracts and delivering them to the 

employee, all of which by that time used to exist in the general labor provisions. These 

legal amendments stipulated that unless the employer gave the employee a labor 

contracts in a written form, the employer is due to send a written statement (Article 21a) 

within a 30-day deadline to the permanent employee and on the day of the beginning 

of work to the temporary employee. The obligation of signing a contract in a written 

form still exists only with signing of contracts on temporary and occasional jobs (Article 

137. paragraph 1.of the FBaH Labor law). It is important to emphasize that these legal 

amendments have not been harmonized with the provision on civil registry, which 

precisely states that, within an 8-day deadline, the employer is due to fi le an insurance 

registration for every employee, or a person for whom pensioners’ and health insurance 

is obligatory, for which it is necessary to enclose a labor contract. Also, the labor contract 

must be enclosed during health insurance registration. 

By the same token, these Amendments of the FBaH Labor Law also erased, 

unfortunately, provisions on employees’ rights on social insurance, healthcare and the 

like, probably for these issues were regulated by special provisions from this area. 

Given the pervasiveness of contributions evasion for social insurance or violations of 

14


regulations from this area at the expense of the workers’ rights, it would be necessary 

to reintroduce provisions on the necessity of paying social insurance into the Labor 

law. It is important to state that the obligation of registering an employee for health, 

pension and disability insurance and the insurance against work-related accident has 

been defi ned as mandatory according to the RS and Brčko District Labor laws. 

Furthermore, the amendments of the FBaH Labor law affected the provisions 

regulating duration of labor contracts. According to earlier regulations, a labor contract 

could be made for permanent employment, and only in particular circumstances, 

made specifi c by the law, a labor contract could be made for temporary employment. 

According to the current provisions a labor contract can be made both for permanent 

and temporary employment and this is, perhaps, the provision most frequently violated 

by employers. Today, we have a situation that temporary employment contracts are a 

rule, especially in the private sector, and even in state institutions. Although the Labor 

law makes it specifi c (Article 19. paragraph 4.) that a temporary employment contract 

which is made consecutively with the same employer for a period longer than 2 years is 

to be considered a permanent employment contract, the practice is completely reverse 

and employers for the most part violate the aforementioned provision. 


Herzegovina 

Additionally, the FBaH Labor law does not know mandatory employment and 

employment of people through publicly advertized job announcements. However, this 

Law applies to labor and legal status of those employed in a non-public or private sector 

and is analogous to certain public institutions which, by a special provision, are not 

obliged to employ people via advertisements or open competitive job announcements. 

Therefore it is up to the employer’s will to employ labor force without applying the 

institution of a public advertisement or an open competitive job announcement or to 

do without it. An additional problem is the fact that most public institutions, fi nanced 

from the public funds, apply these provisions of the Labor law and they are not required 

to employ new people via job announcement so they do it intrasparently. The fi nal 

outcome of this provision is an unequal approach to employment. 

The RS Labor law defines the process of making labor contracts between workers 

and the employer, working hours, vacations and leaves, salaries and compensations etc. 

In comparison with the general labor provisions of the BaH Federation, the Republika 

Srpska’s general labor provisions are much more favorable for workers as they define 

rights to social insurance, the obligation of a public job announcement etc. Pursuant with 

the law, rights and obligations of workers commence when a worker, based on his/her 

labor contract, starts working for an employer. In contrast with the BaH Federation, in 

the RS it is mandatory to provide a labor contract. However, as in the BaH Federation, 

employers frequently violate workers’ rights. In such cases, the employee is entitled to 

15


file a lawsuit for the protection of his/her rights, whereby the deadline for filing a lawsuit in 

workers’ disputes is one year (Article 118 of the Labor law). In practice this deadline has 

proven to be too short due to the fact that employees, due to their specific ‘subordinate’ 

position, file lawsuits only in case of great necessity once they have exhausted all 

negotiating possibilities in order to exercise their rights- hoping and negotiations usually 

last longer than one year. For this reason, the deadline for filing a lawsuit should be 

extended to three years. 

b. Applicability 


Herzegovina 

Laws stemming from labor legislation contain a number of provisions which 

should offer an effective protection of labor rights. However, the problem in practice 

is the application of the aforementioned provisions and employees’ basic rights are 

violated on an everyday basis. According to the Reports of the Association ‘Initiative 

for Development and Cooperation BaH’, for the time period April 1 st , 2008-August 20 th , 

2009, the greatest number of this association’s benefi ciaries are the people whose rights 

stemming from labor legislation have been violated: they are mostly illegal dismissals, 

disregard of labor contracts as well as unequal approach to employment. 

- Disregard of the labor contract – 

As one of the frequent problems regarding private employers, this association 

has identifi ed the problem of frequent failure to provide a labor contract, which is 

particularly conspicuous in Republika Srpska where the obligation to provide a labor 

contract has been defi ned by the general labor provisions. In practice, it often happens 

that an employee agrees to work for an employer without a labor contract or based 

on an oral contract. Frequently, the employee does not remember whether the labor 

contract has been signed or not or they have not received their copy of the contract, 

so they do not know the contract’s content, i.e. what their rights and obligations are. 

For fear of losing a job, the employee often does not dare to ask about this document. 

Without a labor contract, an employee cannot be registered for social insurance so they 

work virtually unregistered thus being deprived of their basic rights stemming from the 

labor relationship guaranteed by the law. It is worth emphasizing that in the RS it is a 

regular practice for a big number of mostly private employers that, when they give an 

employee a contract to sign, they simultaneously give him him/her a blank agreement 

on termination of employment by consent to sign. That means that an employer is 

able to use and terminate the labor contract with an employee at any time, without the 

employee’s knowing, will or blame for it. It is also very often that an employee is not 

given a copy of the signed labor contract so that he/she usually knows next to none 

about the content of the signed contract. 

16


The aforementioned provisions of the contract are often violated by the employer 

and the employee usually agrees for he/she can lose a job over the slightest objection, 

and it is hard to fi nd another one with another employer. Disregard of the labor contract 

is also a frequent problem both in the private sectors and in public companies. Due 

to the hard economic situation and problems with business making, and very often 

due to their irresponsibility and haughtiness towards employees, employers are often 

unable or do not want to pay regular salaries which implies their disregard for paying 

for social insurance as well. In this way a worker is not only deprived for his or her work 

compensation and is often unable to fulfi ll his/her basic human needs but moreover, his/ 

her family, due to the disregard for paying social insurance contributions, are disentitled 

from paid healthcare as well as other rights from social insurance that have a more 

long-term character. Not paying social insurance contributions can be a problem in 

situations when the employer regularly pays salaries. Namely, as employees have not 

been provided with a system of checking whether their social contributions have been 

paid, the employee usually fi nds out about this problem when he or she loses the job and 

reports to the Employment Bureau. Employees for whom social insurance contributions 

have not been paid, when left jobless, can neither receive unemployment benefi ts 

from the Employment Bureau nor paid healthcare. Also not paying social insurance 

contributions includes contributions for pensioners’ and disability insurance. According 

to the provisions on pensioners’ and disability insurance in both entities, insurance 

(contribution) period only includes years for which social insurance contributions have 

been paid. Given that the precondition for exercising rights of old-age pension in BaH 

Federation is 20 years of pensionable period and in Republika Srpska 20 years of 

insurance period, not paying pension insurance contributions can result in an individual’s 

failure to exercise rights to pension at all, or, due to a small number of contribution 

period and reporting of a low contribution basis, to exercise rights for the lowest or 

minimum pension, which is barely suffi cient to cover the existential minimum. 


Herzegovina 

Also, the decision on termination of labor contract is orally conveyed to the 

employee or they bring a decision on termination of labor contract that looks more like 

an announcement than a decision. The very text of the decision states no clear reasons 

for the termination of labor nor does it state any legal grounds or employer’s acts based 

on which such a decision is made. It does not state if the employee is entitled to a 

severance pay and is either given without or with a misrepresented instruction of legal 

remedy. The law prescribes that the decision on termination of contract is to be given 

in a written form with a detailed explanation of the reason for the termination and with 

an obligatory delivery of the decision to the employee. Failure to deliver the decision 

on termination of labor contract in a written form harms the employee for he/she cannot 

start certain procedures nor can he/she exercise certain rights, such as use of legal 

remedy, application at the Employment Bureau, lodging a claim to exercise rights for 

17


fi nancial compensation during unemployment, regulating of healthcare rights etc. 

- Misuse of temporary labor contract – 


Herzegovina 

Regulations on temporary labor contract are often misused in practice. An 

illustrative example is the case of an ‘Initiative for Development and Cooperation BaH’ 

benefi ciary who worked for a private company for 7 years based on a temporary labor 

contract. The company would deregister this person from PIO (Pensioners’ Insurance 

Fund) periodically, or after every 2 years, and then register him again after a couple 

of days without this person ever knowing about it. Only after the last temporary labor 

contract expired and when his employment stopped, did the benefi ciary realize how 

manipulated his labor contracts were. The BaH Federation’s Labor law Article 20 

provision 7 states precisely that a time period of 15 days between the contracts with the 

same employer is not considered a termination of labor contract, and most employers 

and employees do not know about it. Employers misuse this provision because of the 

severance pay and this is how they avoid paying it. For our benefi ciary, after 7 years 

of uninterrupted service (the interruption was only formal and lasted shorter than the 

duration prescribed by the Law of the PIO registry) the benefi ciary was disentitled from 

the severance pay. 

- Problem of discrimination – 

Discrimination based on ethnic, gender and age basis is the most frequent 

type of discrimination when it comes to employment in Bosnia and Herzegovina. Ethnic 

discrimination is deeply rooted in the wartime confl ict and is present both in the public 

and private sector. In some cases, discrimination acts as a result of a premeditated 

politics or due to lack of interest of authorities to place a public job announcement 

advertising a vacancy and adequately informing members of all ethnic groups about the 

job opening. In many reports it is often stated that returnees are the most violated group 

when it comes to ethnic discrimination especially when it comes to their employment in 

public institutions (2) . The problem of ethnic-based discrimination is less present in the 

private sector. 

However, gender and age discrimination is more present in the private sector 

than in the public. Women are an especially vulnerable category at the labor market. 

They are often discriminated based on their ethnicity and age. In the EU report on BaH’s 

progress from 2008, it is stated that ‘no measures have been taken in order to look at the 

2 Bosnia and Herzegovina: “Report on implementation of the international agreement on economic, social 

and cultural rights“, July, 21 2004, page 24. 

18


problems related to women’s access to labor market.’ As a consequence, gender-based 

discrimination of employees remains widespread, as there are still too few women in 

politics and their salaries are generally lower than those of men (3) . Gender and agebased 

discrimination as well as disability-based discrimination are consequences of 

rooted prejudice and the lack of adequate politics from authorities so the entire society 

could be more sensitized about these problems. 

Annex IV of the Dayton Peace Agreement, which is also the BaH constitution, 

as well as the entity constitutions (Article II.4. of the BaH constitution, Article II.A.2 

of the BaH Federation’s constitution, and Articles 1 and 10 of the RS constitution) 

forbid unequal treatment or discrimination based on race, skin color, gender, language, 

religion, political or other convictions, social status or trade union membership. Labor 

laws also forbid all forms of discrimination regarding employment and at work place. 

Despite explicit legal provisions prohibiting termination of a labor contract with a woman 

during pregnancy (Article 53 of the FBaH Labor law and Article 71 of the RS Labor 

law) and discrimination during employment, a pregnant woman is rarely hired and it is 

not rare that employers fi re women during pregnancy. The lack of adequate inspection 

control and rare sanctioning of employers for discrimination consequently leaves the 

implementation of anti-discrimination provisions only to the employer’s conscience. 


Herzegovina 

- Problem of not paying overtime work- 

The problem of unpaid overtime work is widespread in the private sector. For 

fear of losing job, employees do not dare to work overtime and this work is mostly 

unpaid. So many employees work over 40 hours a week against their will and their 

overtime is not even paid. According to the legal acts in force, the employee is obliged 

to work overtime up to 10 hours a week at most in case of force majeure and a sudden 

increase of the amount of work, with the right to an increased salary. However, although 

the employee is entitled to an increased salary for the overtime at least 30% of the 

gross hourly rate, for work at night at least 30 %, for work during weekend at least 20% 

and work during state holidays (non-working days as defi ned by the law) at least 50% 

of the gross hourly rate, it is almost never applied in the practice. This problem has 

been neglected by trade unions and inspectorates in charge who should be working on 

identifi cation, and labor inspectorates in charge on sanctioning of unpaid overtime work 

and prevention of this provision’s misuse by employers. 

3 Bosnia and Herzegovina, 2008 Progress report, European Commission, November 5 th , 2008, page 41. 

19


- Article 143 and Article 152 of the entities’ labor law – 


Herzegovina 

One specifi c problem burdening the labor market in BaH and its entities is the 

problem of employees who lost their job during the war. The entities’ labor law provisions 

(Article 143 of the BaH Labor law and Article 152 of the RS Labor law) stipulate that 

those employees who were left jobless during the war for they could not come to work 

and report, under certain rights are entitles to reestablish their labor-legal status, or to 

get compensation as a severance pay for getting illegally fi red. As employers refused 

to decide in accordance with employees’ claims related to reestablishment of the laborlegal 

status and calculations of severance pay, a Committee for Implementation of the 

Article 143 has been established in the BaH Federation while in the RS, claims are fi led 

to a specially created fund established by the RS government for these purposes and 

its duties are to pay severance pays. In the BaH Federation, aside from the fact that 

employees received fi nal decisions of the Committee, severance pays were still brought 

into questions so employees were forced to go to court and receive the severance pay 

via enforcement action. Still, for the most number of cases, authorities in charge would 

bring negative decisions. Also due to the process length, most employees stopped 

insisting on the process termination thinking that a lot of time had passed and that 

they would never be able to settle their claims. According to the legislation in force, the 

category of the so-called ‘waiting workers’ offi cially does not exist. 

In practice, however, the situation is completely different. Another example of a 

benefi ciary of ‘Initiative for Development and Cooperation BaH’ is a good illustration of 

how these provisions are applied: 

The benefi ciary has been ‘waiting’ for her job since 2001 and up until this day has 

been unable to resolve her situation and claim her status. She is still registered 

in PIO and health insurance fund registry. The company still exists in the court 

registry, it has not been erased, but it offi cially does not work. Her employment 

record card is still in this company’s premises. She gave up the lawsuit instigated 

by this company’s employees because she could not afford a legal representative. 

Activities related to proclaiming the company’s bankruptcy are under way. 

- Safety at work- 

The employer is due to assure necessary conditions for safety at work which 

assure employees’ lives and health, which familiarize employees with provisions from 

safety at work area, and is due to train the employee in such a way as to assure his or 

her life safety and health in order to prevent from accidents. The fact that the Law on 

20


safety at work from 1990 is still in force in BaH Federation speaks volumes about the 

situation in this area. Recently, there have been some advents in this area, since the BaH 

Federation government has laid down The Proposal of the Law on Security and Health 

at Work and has referred it to the parliamentary procedure. The problem with safety at 

work is big because accidents at work are frequent and some of them can be fatal. Both 

employers’ and employees’ awareness about risks is low, and because of the general 

crisis, employees take up work in dangerous conditions without adequate protection 

only to secure pay for them and their family. Employees who have life threatening jobs 

very often work illegally and are not insured against accidents so after the accident 

happens, they and their families face additional problems as how to get compensation 

from an insurance company or damage compensation from the employer. Trade unions 

and all other subjects participating in deciding and controlling of the national policy on 

safety at work, healthcare and work environment (state, employers, employees and 

others) should take greater interest in this problem so employees’ health and safety at 

work be one of their main preoccupations. They should also organize pertinent training 

and education programs. 

c. Role of Internal and External Actors 


Herzegovina 

Pursuant with the provisions of the Labor law of both entities, employees who 

work for an employer employing at least 15 workers, are entitled to form an employees’ 

council which is to represent them in front of the employer in order to protect their rights 

and interests. These laws also defi ne employees’ rights to organize a trade union, to 

freely become its members, to step out of it, and not be in any less favorable position 

with the employer as a result of it. The purpose of the council of employees and trade 

unions is to protect and represent the interests of their member as well as all employees 

working for an employer. 

Workers’ right to association and collective negotiation is a model for the building 

of trust between the two, at fi rst sight, confl icted sides- on one side it is the employer 

whose primary motivation is profi t and the employees, on the other side, who want 

better work conditions. Interests of these two parties look only illusively confl icted. In 

essence, their interest is the same, and this is to achieve profi t from business activitiesthe 

level of business gain often determines the amount of pay, the level and scope 

of new business investment etc. Numerous studies have shown that the dynamics 

gained from freedom of association results in improved work conditions. This increases 

productivity, income and profi t for all in the production process. 

However, effectiveness of trade unions and workers’ councils is insuffi cient. 

Unfortunately, in BaH there is no real culture of trade union negotiations. Despite 

21



Herzegovina 

possibilities of self-organizing and existence of inherited syndical structure, a lot 

of trade unions are but relics of socialism- from the times when trade unions had a 

specifi c, state-determined role. Main joint characteristics of trade unions in the country 

are their bureaucratization and lack of active members who would even slightly 

affect the election and policy of its leadership. These organizations have no ‘base’ in 

companies so it is not surprising that they rarely succeed in protecting their members’ 

and other workers’ interests. Workers mostly stress those demands connected with the 

realization of their basic economic and social rights, primarily those related to salaries 

and security. Numerous examples of strikes, hunger strikes, and blocking of roads 

by workers directly indicate absence of dialogue and culture of negotiation between 

workers’ representatives, employers and the state (in these situations, the state often is 

the employer) as well as the inadequate protection of workers by trade unions. 

The role of trade unions in market economy should surely be more active when it comes 

to workers’ rights. In regard to this matter, it would be necessary to reorganize trade 

unions, to build a culture of dialogue, collective representation and negotiation both 

on the part of workers’ representatives and trade unions, and on the part of employers 

and the state. Only by means of a genuinely open, constructive dialogue and building 

a culture of negotiation, can we create economic-social progress and fulfi ll interests of 

workers and employers. 

The state controls legality of the employer’s work by means of labor and tax 

inspections. Unfortunately, tax inspections control only pay of contributions and illegal 

work, while labor inspections, which should be protecting rights of employees are mostly 

ineffective. According to the legal experts of ‘Initiative for Development and Cooperation 

BaH’, activities of labor inspections mainly involve conducting inspections in order to 

establish whether the inspected labor is legal or not, after which minutes are created 

where facts of the case are established. If they decide that violations have been made, 

the employee is sent to court to exercise his or her rights through a litigation process. 

Labor inspections should protect workers’ rights and not just conduct a strict control of 

labor from the law enforcement perspective. In that sense, the law should be amended 

so that inspections can be more fl exible in order to protect workers’ rights. 

Pursuant with the Labor law, municipal courts are in charge of settling disputes 

from labor relations. Also, provisions of the same law defi ne a one year deadline for 

fi ling a lawsuit for violations of workers’ rights, which is a very short time. As it is stated 

in the report of “Initiative for Development and Cooperation BaH”, for the period April 

1, 2008-August 20, 2009, absence of updated documentation on regular calculations, 

level and pay of salaries, is a frequent problem in legal disputes in this area. To prove 

their right, workers are forced to ask for expert opinions to resolve these matters, which 

is an additional fi nancial burden for them. 

22


In Republika Srpska, we know about cases where courts have brought decisions 

in which workers’ lawsuits were rejected as untimely, and all of that during the course 

of an open bankruptcy procedure (all court procedures should have been terminated 

and compensation was to take place during the bankruptcy procedure). On the other 

hand, disputes for exercising rights from labor relations are fairly long, although the 

law prescribed that those procedures were urgent, with very short deadlines, which is 

hardly the case in practice. For this reason, many think that there should be separate 

departments for settling of labor disputes within regular court, just like some EU 

countries. 

Through the practice of “Initiative for Development and Cooperation BaH” legal 

experts, we have noticed the problem of discrimination of the workers who instigated 

lawsuits against their employer to get compensation for unpaid salaries and social 

insurance contributions. We know about the cases where a trustee in bankruptcy 

admitted claims of workers’ who haven’t fi led lawsuits, and denied to admit claims 

of those workers who were rejected by the Municipal court as a consequence of the 

employer’s appeal for their lawsuits were untimely fi led in 2005. Such examples of 

discrimination and disregard of obligations from the labor contract are particularly 

alarming. 


Herzegovina 

Chapter II 

1. International mechanisms 

Legal acts which are foundations of the international labor law are brought 

by the International Labor Organization (henceforth ILO), which is a very complex 

international public organization. Its membership consists of representatives of 

government, employers and workers. ILO was formally established within the frame of 

the then existing League of Nations and based on 13 th part of the Treaty of Versailles 

and provisions of other peace treaties related to World War I. It was envisaged as a 

technical organization and the means of the League of Nations to achieve general 

peace, stability and prosperity on the world. The agreement between ILO and League of 

Nations defi ned that members of the League of Nations are at the same time members 

of ILO. Today, ILO is a permanent organization of states and has 183 members. With 

the break-up of the League of Nations, ILO, based on the UN Charter, was transformed 

into a specialized UN organization which is why ILO membership is connected with the 

UN membership. Bosnia and Herzegovina became a member of ILO in 1993 after it had 

reported to the Director General of the International Office of Labor on its acceptance of 

23


obligations from the ILO constitution. 

The most important ILO activity is normative. Since its onset in 1919, its 

adopted conventions and recommendations have regulated a number of labor law and 

social security issues: prohibition of forced labor, exclusion of discrimination, equality 

of treatment, freedom of association, employment problems, social policy, collective 

labor relations etc. Bosnia and Herzegovina, up until today, has ratifi ed majority of 

most important ILO conventions related to labor law, and its overview is given in the 

Addendum 1. 


Herzegovina 

Apart from the ratified ILO conventions, the International pact on economic, 

social and cultural rights as we as the European social charter are the most important 

documents providing labor rights protections and which Bosnia and Herzegovina is to 

apply at its entire territory. 

The widest protection of human and labor rights has been assured by the 

International pact on economic, social and cultural rights, the provisions of which 

include: 

Article 6 

1. The States Parties to the present Covenant recognize the right to work, which 

includes the right of everyone to the opportunity to gain his living by work which 

he freely chooses or accepts, and will take appropriate steps to safeguard this 

right. 

2. The steps to be taken by a State Party to the present Covenant to achieve the 

full realization of this right shall include technical and vocational guidance and 

training programs, policies and techniques to achieve steady economic, social 

and cultural development and full and productive employment under conditions 

safeguarding fundamental political and economic freedoms to the individual. 

Article 7 

The States Parties to the present Covenant recognize the right of everyone to the 

enjoyment of just and favorable conditions of work which ensure, in particular: 

(a) Remuneration which provides all workers, as a minimum, with: 

(i) Air wages and equal remuneration for work of equal value without distinction 

of any kind, in particular women being guaranteed conditions of work 

not inferior to those enjoyed by men, with equal pay for equal work; 

24


(ii) A decent living for themselves and their families in accordance with the 

provisions of the present Covenant; 

(b) Safe and healthy working conditions; 

(c) Equal opportunity for everyone to be promoted in his employment to an appropriate 

higher level, subject to no considerations other than those of seniority 

and competence; 

(d) Rest, leisure and reasonable limitation of working hours and periodic holidays 

with pay, as well as remuneration for public holidays 

Article 8 

1. The States Parties to the present Covenant undertake to ensure: 

1. The right of everyone to form trade unions and join the trade union of 

his choice, subject only to the rules of the organization concerned, for 

the promotion and protection of his economic and social interests. No 

restrictions may be placed on the exercise of this right other than those 

prescribed by law and which are necessary in a democratic society in 

the interests of national security or public order or for the protection of 

the rights and freedoms of others; 


Herzegovina 

2. The right of trade unions to establish national federations or 

confederations and the right of the latter to form or join international 

trade-union organizations; 

3. The right of trade unions to function freely subject to no limitations other 

than those prescribed by law and which are necessary in a democratic 

society in the interests of national security or public order or for the 

protection of the rights and freedoms of others; 

4. The right to strike provided that it is exercised in conformity with the 

laws of the particular country. 

. This article shall not prevent the imposition of lawful restrictions on the exercise 

of these rights by members of the armed forces or of the police or of the 

administration of the State. 

. Nothing in this article shall authorize States Parties to the International Labor 

25


Organization Convention of 1948 concerning Freedom of Association and 

Protection of the Right to Organize to take legislative measures which would 

prejudice, or apply the law in such a manner as would prejudice, the guarantees 

provided for in that Convention. 

Article 9 

The States Parties to the present Covenant recognize the right of everyone to social 

security, including social insurance. 


Herzegovina 

Bosnia and Herzegovina has ratifi ed certain provisions of the European social charter 

pertaining to labor and labor relations such as: 

Article 1. - The Right to Work 

With a view to ensuring the effective exercise of the right to work, the Parties under take: 

1. to accept as one of their primary aims and respon sibili ties the achieve ment and 

maintenance of as high and stable a level of employ ment as possible, with a 

view to the attainment of full employment; 

2. to protect effectively the right of the worker to earn his living in an occupation 

freely entered upon; 

3. to establish or maintain free employ ment services for all work ers; 

4. to provide or promote appropriate vocational guid ance, training and rehabilitation. 

Article 2. - The Right to just conditions of work 

With a view to ensuring the effective exercise of the right to just condi tions of work, the 

Parties undertake: 

1. to provide for reasonable daily and weekly working hours, the working week 

to be progressively reduced to the extent that the increase of productivity and 

other relevant factors permit; 

2. to provide for public holidays with pay; 

3. to pro vide for a minimum of four weeks’ annual holiday with pay; 

4. to eliminate risks in inherently dangerous or unhealthy occupations, and 

where it has not yet been possible to eliminate or reduce suffi ciently these 

risks, to provide for either a reduction of working hours or additional paid 

holidays for workers engaged in such occupations; 

26


5. to ensure a weekly rest period which shall, as far as possible, coincide with 

the day recognized by tradi tion or custom in the country or region con cerned 

as a day of rest; 

6. to ensure that workers are informed in written form, as soon as possible, 

and in any event not later than two months after the date of commencing 

their employment, of the essential aspects of the contract or employment 

relationship; 

7. to ensure that workers performing night work benefit from measures which take 

account of the special nature of the work. 

Article 4. - The right to a fair remuneration 

Article 4 recognizes the right of men and women to equal pay for work of equal value. 

Article 5. - The right to organize 

With a view to ensuring or promot ing the freedom of workers and employers to form 

local, national or internation al organizations for the pro tection of their economic and 

social interests and to join those organi zatio ns, the Parties undertake that national law 

shall not be such as to impair, nor shall it be so applied as to impair, this freedom. The 

extent to which the guarantees provided for in this article shall apply to the police shall 

be determined by national laws or regulations. The principle govern ing the application 

to the members of the armed forces of these guarantees and the extent to which they 

shall apply to per sons in this category shall equally be determined by national laws or 

regulations. 


Herzegovina 

Article 6. - The right to bargain collectively 

With a view to ensuring the effective exercise of the right to bargain collectively, the 

Parties under take: 

1. to pro mote joint con sulta tion between workers and employ ers; 

2. to promote, where necessary and appropri ate, machinery for voluntary 

negotia tions between employers or employers’ organizations and workers’ 

organizations, with a view to the regulation of terms and conditions of 

employment by means of collective agreements; 

3. to promote the estab lishment and use of appro priate machin ery for conciliation 

and voluntary arbitration for the settlement of labor dis putes: and recognize: 

4. the right of workers and employers to collec tive action in cases of conflicts of 

interest, including the right to strike, subject to obligations that might arise out 

27


of col lective agreements previously entered into. 

Article 8. - The right of employed women to protection of maternity 

With a view to ensuring the effective exercise of the right of employed women to the 

protection of maternity, the Parties undertake: 


Herzegovina 

1. to provide either by paid leave, by adequate social security benefits or by 

benefits from public funds for employed women to take leave before and after 

childbirth up to a total of at least fourteen weeks; 

2. to consider it as unlawful for an employer to give a woman notice of dismissal 

during the period from the time she notifies her employer that she is pregnant 

until the end of her maternity leave, or to give her notice of dismissal at such a 

time that the notice would expire during such a period; 

3. to provide that mothers who are nursing their infants shall be entitled to sufficient 

time off for this purpose; 

4. to regulate the employment in night work of pregnant women, women who 

have recently given birth and women nursing their infants; 

5. to prohibit the employment of pregnant women, women who have recently 

given birth or who are nursing their infants in underground mining and all other 

work which is unsuitable by reason of its dangerous, unhealthy or arduous 

nature and to take appropriate measures to protect the employment rights of 

these women. 

Article 12. - The right to social security 

With a view to ensuring the effective exercise of the right to social secu rity, the Parties 

undertake: 

1. to establish or maintain a system of social security; 

2. to maintain the social security system at a satisfactory level at least equal to 

that necessary for the ratification of the European Code of Social Security. 

Article 22. - The right to take part in the determination and improvement of the 

working conditions and working environment 

With a view to ensuring the effective exercise of the right of workers to take part in the 

determination and improvement of the working conditions and working environment in the 

undertaking, the Parties undertake to adopt or encourage measures enabling workers or 

their representatives, in accordance with national legislation and practice, to contribute: 

28


a 

b 

c 

d 

to the determination and the improvement of the working conditions, work 

organization and working environment; 

to the protection of health and safety within the undertaking; 

to the organization of social and socio-cultural services and facilities within 

the undertaking; 

to the supervision of the observance of regulations on these matters. 

2. Infl uence of international organizations / mechanisms 

Violations of labor rights can be committed by the employer but also by the state. 

The omission of the state to prevent violations of rights makes the state responsible 

for these omissions. So, the state is due and responsible to establish mechanisms of 

protection of rights of its citizens according to the principles and in the spirit of the ratifi ed 

international documents. In order to infl uence the states not fulfi lling its internationally 

undertaken obligations has resulted in creation of different control mechanisms in the 

UN system such as: control mechanism stipulated by the international human rights 

conventions, special procedures that are applied in accordance with decisions of the 

relevant UN supervisory bodies such as Human Rights Committee, Subcommittee on 

Human Rights, and Office of the High Commissioner for Human Rights (UNHCHR) as 

a separate supervisory body. 


Herzegovina 

Undertaking parties or committees consist of individuals who, although elected 

by the undertaking parties, act as individuals. The committees’ main function is to insist 

on the parties’ adherence to undertaken obligations. In order to perform that function, 

the committees receive national reports on the measures that states are undertaking 

to fulfi ll the rights contained in the conventions as well as the progress made in this 

respect. The reports are then forwarded to the UN Secretary General who then delivers 

them to relevant committees for review. The report, if need be, should also contain 

factors and diffi culties affecting realization of the conventions’ provisions. 

The mechanism for supervision within the UN system that applies the most is 

the reporting system. This mechanism of supervision was introduced by ILO and this is 

the so-called regulatory mechanism of supervision which is based on the dialogues of 

the committees in charge and member states. 

As it was realized that merely bringing conventions and recommendations does 

not immediately lead to realization of objectives, ILO though that international legal 

standards should be tied to technical cooperation so these standards can be achieved in 

29


different and specifi c economic, social, cultural and other circumstances. It is generally 

thought that technical cooperation can be widely used provided it is grounded on well 

defi ned, authoritative, and generally accepted standards. To put it briefl y, technical 

cooperation implies offering material assistance of ILO, cooperation of offi cials and 

experts on certain countries’ projects, and bringing and application of international 

standards and national legislation, sending workers’ and experts to industrially developed 

countries to improve their skills. It has been recognized that technical cooperation can 

assure especially effective resources and methods for standards’ application incentive. 

Also, there is a system of supervision of technical cooperation implementation. 


Herzegovina 

Representatives of UN member countries, or ILO, meet every June in Geneva 

to defi ne and adopt international labor standards and discuss key social and labor 

issues. Government representatives of every country come together with their expert 

advisors as well as employees’ and employers’ representatives, all of whom can freely 

present their opinions in accordance with their organizations’ instructions. It is often the 

case that trade unions’ and employers’ representatives vote contrary to their country’s 

government representatives. 

International mechanisms of supervision are not to be understood as a 

replacement for national mechanisms and measure undertaken to apply human 

rights standards because it is every member state’s obligation and responsibility 

to provide implementation of human rights of all people under its jurisdiction. The 

internationalization of human rights, however, and recognition of the fact that human 

rights are not exclusively in the national domain; it is the international community’s 

legitimate interest that every member country should provide respect of human rights in 

accordance with the internationally recognized standards. 

The supervisory function over the implementation of the International Pact on Economic, 

Social, and Cultural Rights is performed by the Committee for economic, social and 

cultural rights (founded by the ECOSOC’s resolution 1985/17 on May 28, 1985), which 

has 18 members. Every undertaking country is due to submit a report on the Pact 

implementation to this Committee within one year following the signing of the Pact. 

3. Relations between domestic and international actors with regard 

to establishing a legal framework of labor legislation 

Aside from the domestic law in Bosnia and Herzegovina, numerous international 

acts or agreements are also in force. According to the Constitution, those international 

agreements that had been made and confi rmed in accordance with the Constitution and 

published, are a part of the internal order and they are above the law in terms of their 

30


legal force. Their provisions can be changed or revoked only in accordance with the 

conditions and procedures defi ned in them or in accordance with the general rules of 

international law. 

In most Western European countries, the monistic principle applies, according 

to which the domestic and international law is a single system. In this case, international 

agreements ratified by the state do not have to be adopted by special national legal acts 

and they become national law by ratifi cation. They automatically become a part of the 

legal system of the country in charge. 

On the other hand, the dualistic principle considers domestic and international 

law to be two separate and independent legal orders. In order for international law to 

become obligatory and applicable at the territory of one country, it previously needs to 

become a part of that country’s legal order. The agreement needs to be made into a law. 

Today both monistic and dualistic theories have softer attitudes due to 

objections that have been made. Their application has been directed to the interrelation 

between the rules of domestic and international law. The legal nature of those norms 

is different. The international ones are divided into directly applicable (their application 

does not require additional legislative measures) and program norms (consists of 

program statements or rules and of general terms the meaning of which is unspecified, 

so they cannot directly apply nor can referring to them in court lead to exercise of a 

subjective right or undertaking of an obligation). Most economic and social rights of the 

international agreements has been defi ned by program norms- the state is considered 

to have an obligation to implement targeted policies aiming at gradual realization of 

certain international norm via its government. 


Herzegovina 

Pursuant with the Annex IV of the Dayton peace agreement, the EU convention 

on human rights and general liberties has been directly applied in BaH. The BaH 

Federation constitution defi nes the following instruments to be relevant for the protection 

of human or labor rights and they have a legal force of constitutional provisions. These 

are: European social charter from 1961 and Protocol I, International agreement of 

economic, social and cultural rights from 1966 and additional protocols from 1989, and 

the International convention on abolishing all kinds of racial discrimination from 1965, 

International convention on abolishing all kinds of discrimination of women from 1979, 

UN Declaration on abolishing all kinds of intolerance and discrimination based on faith 

and convictions from 1981. 

The RS Constitution also protects the right to work and other work-related 

rights. It has been stipulated that a labor relation and the right to remuneration can 

31


be terminated only under the conditions defi ned by the law and collective agreement. 

Pursuant with this Constitution, employees have the right to limited working hours, 

paid vacations and leaves, safety at work, special protection of youth, women, and the 

disabled. Freedom of trade union organizing and the right to strike, right to social security 

and social insurance of employees and their families and the right to unemployment 

insurance have all been guaranteed under the conditions prescribed by the law. 


Herzegovina 

International conventions of legislative character give optimum possibilities for 

protection and improvement of respect of human rights. An individual, in this case, 

can refer to his/her rights and effi ciently protect them. Still, with the international plan 

in question, it is a fact that mechanisms, which have been accepted by now, have a 

rather limited range. Regular supervision- or international supervision based on the 

reports submitted by the states pertaining to the application of ratifi ed human rights 

conventions, and special supervisions, be it those of quasi-legal character or those 

implemented by the relevant UN bodies- in principle comes to a political pressure on 

the member states based on the competent UN bodies’ recommendations. In that 

sense, the situation universally still far from how it is understood regionally or in Europe. 

Disregard of the European social charter and disregard of decisions of the European 

court for human rights can result in expelling the country in question from the Council of 

Europe. 

4. Harmonization with international standards, especially with the 

ILO practice on provisions of ILO conventions 

Bosnia and Herzegovina has ratifi ed a total of 68 ILO conventions and is due 

to implement them in positive legislation. Many of the ratifi ed conventions are related 

to labor and labor relations regulations and safety of work in maritime activities, which, 

at the moment, is not relevant for BaH. In the same way, BaH has ratifi ed many of the 

most important ILO conventions relevant for the area of labor, labor relations and safety 

at work. Thus, entity laws are mostly grounded on the basic principles of the adopted 

conventions. However, we should assure a greater degree of harmonization of labor 

regulations with the adopted conventions, which would mean progress in realization 

of a greater degree of social justice. This, above all, pertains to the Convention on 

paid vacation number 132, Convention on minimum age number 138, Convention on 

protection of motherhood number 103, Convention on equal remuneration of men and 

women workers to equal pay for work of equal value number 100, Convention on safety 

at work and health safety number 155 etc. 

In BaH Federation, the latest Law on Amendments of the Labor law, which 

32


has entered legal procedure, stipulates new provisions that in a more detailed way 

defi ne prohibition of discrimination and types of discrimination in the area of labor and 

employment, prohibition of harassment and sexual harassment, gender based violence 

and systematic harassment at work and related to work including mobbing as specifi c 

form of systematic harassment. The aforementioned amendments stipulate possibilities 

of court processing of discrimination cases in the sense of this law’s provisions, whereby 

the burden of proving is up to the employer as well as the right to damage compensation 

in case of well-founded claims. 

The prohibition of discrimination in the sense of the draft Law on Amendments 

of the Labor law in the BaH Federation pertains to discrimination related to terms of 

employment and selection of candidates to perform a certain job; labor conditions and 

all rights from the labor relation; education, training and advanced training; promotion 

at work and cancellation of labor contracts. The provisions of the labor contract defi ning 

discrimination on any of these grounds are considered null and void. The law also 

stipulates a new article which clearly prescribes that the employer is due to pay equal 

salaries for the work of equal value to workers regardless of their national, religious, 

gender, political and trade union affi liation. Work of equal value implies the work requiring 

equal level of professional training and education, equal work ability, responsibility, and 

physical and intellectual work. 


Herzegovina 

Failure to observe these legal provisions stipulates a fi nancial sanction for the 

employer-as a legal entity, the employer- as a physical entity as well as the person 

in charge in the legal entity. The attempt of such legal proposals, meant to provide 

clearer and more detailed legal order, was to act more specifi cally on the improvement 

of gender equality and their application in this relevant area of social relations. 

Furthermore, general labor acts have not been fully harmonized with the ILO 

conventions (Convention 29 on forced labor and Convention 105 on abolition of forced 

labor), prohibiting all types of forced or mandatory labor in all of its shapes. Namely, 

Article 32, paragraph 1 of the BaH Federation Labor law (FBaH Offi cial Gazette 43/99, 

32/00 and 29/03) and Article 43 of the RS Labor law (RS Offi cial Gazette 38/00, 

40/00,47/02,38/03,66/03 and 20/07) stipulate that in case of force majeure (fi re, 

earthquake, fl ood) and sudden increase of work, as well as in other cases of necessity, 

the employee, at the employer’s request, is obliged to work longer than regular working 

hours, i.e. overtime, for up to 10 hours a week at most. This provision of the Labor law 

is often misused by the employer in the sense that employees are often requested to 

work longer hours justifying it by an increased amount of work. In such cases, where the 

labor legislation leaves possibilities of manipulation and in a time of great unemployment 

or lack of jobs, the employer can easily misuse the provisions and easily justify work 

33


Herzegovina 


outside of offi cial working in front of a labor inspection. 

Regarding the convention 98 on the workers’ rights to organization and collective 

negotiation, in Brčko district, not even after 9 years of bring into force the Labor law of Brčko 

district, has there been a General collective agreement nor has the international standard 

tripartite agreement, stipulated by this convention, been implemented with social partners. 

Still, we can conclude that from the point of view of the ratified ILO provisions, the 

applicability of BaH labor law legislation is much greater a problem than the problem of 

normative harmonization of its local provisions with the Conventions. 

34


Chapter III 

Final Conclusions and recommendations 

Bosnia and Herzegovina has recently ratifi ed the European social charter that 

contains important labor legislation provisions. Upon its independency, BaH ratifi ed the 

International pact on economic, social and cultural rights as well as most conventions 

from the area of labor and labor relations. 

The area of labor and labor relations is in the competence of the BaH entities, 

and legislation from this fi eld has for the most part been harmonized with these 

international legal acts. The worrying part is a bad and random implementation of the 

adopted legislation at the employee’s expense. This is partly caused by the lack of 

adequate institutional mechanisms and weak capacities of institutions in charge of 

enforcing the application of the legal acts, as well as the poor economic situation in the 

country in general which is manifested through the growth of grey economy and the socalled 

black work (illicit work). 

Frequency and character of different types of labor rights violations in BaH are 

worrisome. The most frequent violations of labor rights refer to different types of disregard 

for legislation, disregard of labor contracts, violations of workers’ rights by not paying 

obligatory social insurance contributions, not paying for overtime work, discrimination 

in employment, poor safety at work etc. To make things even worse, employees more 

often than not are not familiarized with their basic rights, work rulebooks are often 

inaccessible to them, and often they voluntarily agree to poor work conditions, or illicit 

work, where no social insurance contributions for them are paid. 


Herzegovina 

Bosnia and Herzegovina should harmonize labor and labor relations legislation 

so they would not be an obstacle to mobility of the country’s work force and an obstacle 

to their exercise of rights. Ministries and institutions in charge should invest more effort 

to assure a consistent application of legislation in this area. To achieve this, legislation 

in this area, above all, has to be fully harmonized with the internationally undertaken 

obligations of harmonization of the legislation with the relevant international legal acts 

so these provisions are clear, easily applicable and harmonized with other provisions 

from the area of social protection. The state, or all competent levels of government, 

should do much more as to inform workers, employers and their representatives about 

their rights and obligations. 

The most drastic shapes of labor rights’ violations are in the area of grey 

economy. Realistically, grey economy and illicit work (black work) can only be reduced 

35


by a growth of economic activities in the country. The state, or the competent levels 

of government, needs to do much more in this fi eld, which is also an obligation to the 

provisions of the European social charter and the European pact on economic, social 

and cultural rights. 


Herzegovina 

Societies and states in which labor rights are not respected are ill with many 

social problems and instabilities that cause a general political instability and unfavorable 

environment for business investments and economic development. Respect, protection 

and full implementation of labor rights in the country is a precondition for economic 

development and growth of economic activity in the country. It is Bosnia and 

Herzegovina’s choice to take the path of social and economic progress for which it 

requires the application and respect of labor rights. 

36


Bibliography 

- Initiative for development (April 1 2008- August 20, 2009),“Improvement 

of economic and social capacities and strengthening of the productive 

network and inclusion into labor market and particularly assistance to 

vulnerable categories “ 

- E/C.12/BaH/CO/1, Final remarks of the Committee on economic, social and 

cultural rights (Zaključne napomene Komiteta o ekonomskim, socijalnim i 

kulturnim pravima) 

- ICVA (June 2009), “Application of the European social charter through 

the laws and practice in BaH”) (“Primjena Evropske socijalne povelje kroz 

zakone i praksu u BaH” Sarajevo 

- Učar M. and Laleta S. (2007), “Conventions of the International Labor 

Organizations With Comments” (“Konvencije Međunarodne organizacije 

rada s komentarima“), Zagreb 

- E.R. Tiongson, and R.G. Yemtsov (2005), „Poverty and the labor market in 

Bosnia and Herzegovina: 2001 to 2004“, mimeo, Svjetska banka 

- S. Dedić and J. Gradaščević (2000), “Foundations of the International 

Labor Law” („Temelji međunarodnog radnog prava“), Legal Center (Pravni 

centar), BaH Open Society Fund (Fond Otvoreno društvo BaH). 

- Association ‘Your rights’ BaH: Analysis of legislation and situation in the 

area of labor rights, May 2006 (Udruženje Vaša prava BaH: „Analiza 

propisa i stanja u oblasti radnog prava“, maj, 2006. godine) 

- Amnesty International: Bosnia and Herzegovina. Behind the closed door: 

ethnic discrimination in employment AI Index: EUR 63/001/2006, January 

2006 

- Bosnia and Herzegovina: report on implementation of the international 

agreement on economic, social and cultural rights (Izvještaj o implementaciji 

međunarodnog ugovora o ekonomskim, socijalnim i kulturnim pravima), 21 

July 2004, page 24. 

- Bosnia and Herzegovina (2008) Progress report. European Commission. 

November 5, 2008, page 41. 


Herzegovina 

37


Addendum I 

List of relevant ILO conventions ratified by Bosnia and Herzegovina 


Herzegovina 

Convention 

Date of ratification 

C2 Unemployment convention, 1919 June 2nd, 1993 

C3 Maternity Protection Convention, 1919 June 2nd, 1993 

C8 Unemployment Indemnity (Shipwreck) Convention, June 2nd, 1993 

1920 

C9 Placing of Seamen Convention, 1920 June 2nd, 1993 

C11 Right of Association (Agriculture) Convention, 1921 June 2nd, 1993 

C12 Workmen’s Compensation (Agriculture) Convention, June 2nd, 1993 

1921 

C13 White Lead (Painting) Convention, 1921 June 2nd, 1993 

C14 Weekly Rest (Industry) Convention, 1921 June 2nd, 1993 

C17 Workmen’s Compensation (Accidents) Convention, June 2nd, 1993 

1925 

C19 Equality of Treatment (Accident Compensation) June 2nd, 1993 

Convention, 1925 

C22 Seamen’s Articles of Agreement Convention, 1926 June 2nd, 1993 

C24 Sickness Insurance (Industry) Convention, 1927 June 2nd, 1993 

C25 Sickness Insurance (Agriculture) June 2nd, 1993 

C29 Forced Labor Convention, 1930 June 2nd, 1993 

C32 Protection against Accidents (Dockers) Convention June 2nd, 1993 

(Revised), 1932 

C45 Underground Work (Women) Convention, 1935 June 2nd, 1993 

C48 Maintenance of Migrants’ Pension Rights Convention, June 2nd, 1993 

1935 

C53 Officers’ Competency Certificates Convention, 1936 June 2nd, 1993 

C56 Sickness Insurance (Sea) Convention, 1936 June 2nd, 1993 

C69 Certification of Ships’ Cooks Convention 1946 June 2nd, 1993 

C81 Labor Inspection Convention, 1947 June 2nd, 1993 

C87 Freedom of Association and Protection of the Right to June 2nd, 1993 

Organize Convention, 1948 

C88 Employment Service Convention, 1948 June 2nd, 1993 

C89 Night Work (Women) Convention (Revised), 1948 June 2nd, 1993 

38


C90 Night Work of Young Persons (Industry) Convention June 2nd, 1993 


C91 Paid Vacations (Seafarers) Convention (Revised), 1949 June 2nd, 1993 

C97 Migration for Employment Convention (Revised), 1949 June 2nd, 1993 

C98 Right to Organize and Collective Bargaining June 2nd, 1993 


C100 Equal Remuneration Convention, 1951 June 2nd, 1993 

C102 Social Security (Minimum Standards) Convention, June 2nd, 1993 

1952 

C103 Maternity Protection Convention (Revised), 1952 June 2nd, 1993 

C105 Abolition of Forced Labor Convention, 1957 June 2nd, 1993 

C106 Weekly Rest (Commerce and Offices) Convention, June 2nd, 1993 

1957 

C109 Wages, Hours of Work and Manning (Sea) Convention June 2nd, 1993 


C111 Discrimination (Employment and Occupation) June 2nd, 1993 


C114 Fishermen’s Articles of Agreement Convention, 1959 June 2nd, 1993 

C121 Employment Injury Benefits Convention, 1964 June 2nd, 1993 

C122 Employment Policy Convention, 1964 June 2nd, 1993 

C126 Accommodation of Crews (Fishermen) Convention, June 2nd, 1993 

1966 

C129 Labor Inspection (Agriculture) Convention, 1969 June 2nd, 1993 

C131 Minimum Wage Fixing Convention, 1970 June 2nd, 1993 

C132 Holidays with Pay Convention (Revised), 1970 June 2nd, 1993 

C135 Workers’ Representatives Convention, 1971 June 2nd, 1993 

C136 Benzene Convention, 1971 June 2nd, 1993 

C138 Minimum Age Convention, 1973 June 2nd, 1993 

C139 Occupational Cancer Convention, 1974 June 2nd, 1993 

C140 Paid Educational Leave Convention, 1974 June 2nd, 1993 

C142 Human Resources Development Convention, 1975 June 2nd, 1993 

C143 Migrant Workers (Supplementary Provisions) June 2nd, 1993 



Herzegovina 

39



Herzegovina 

C144 Tripartite Consultation (International Labor June 2nd, 1993 

Standards) Convention, 1976 

C148 Working Environment (Air Pollution, Noise and June 2nd, 1993 

Vibration) Convention, 1977 

C155 Occupational Safety and Health Convention, 1981 June 2nd, 1993 

C156 Workers with Family Responsibilities Convention, June 2nd, 1993 

1981 

C158 Termination of Employment Convention, 1982 June 2nd, 1993 

C159 Vocational Rehabilitation and Employment (Disabled June 2nd, 1993 

Persons) Convention, 1983 

C182 Worst Forms of Child Labor Convention, 1999 October 5 th 2001 

40


Introduction 

Socio – economic rights guarantee access to resources, services, and possibilities 

necessary for a dignified life. Above all, these are right to work, right to education, right of 

residence, healthcare, social protection, healthy environment and the rest. Basic international 

acts guaranteeing socio-economic rights are the International pact on economic, social and 

cultural rights, which BaH ratified in 1992 as well as the revised European social charter, 

whose most important provisions BaH ratified in 2008. Socio-economic rights have been 

drafted in such a way so that the state is due to respect them, protect them and fulfill them. 

Socio – economic rights study in 

Bosnia and Herzegovina 

When it comes to fulfilling obligations, or the rights guaranteed by the European 

social charter and the International pact on economic, social and cultural rights, it is up to the 

signatory state. This means that the way in which these rights are going to be fulfilled are is 

the exclusive care of the state. Every state will decide on the models of social protection for 

itself so it best suits its political state setup, tradition, specific problems burdening the state, 

the selected political goals, etc. 

The system of social protection in Bosnia and Herzegovina is in the competence of 

the entities, and in the BaH Federation it is in the divided competence between entities and 

cantons. Due to its segmentation, lack of harmonization and an inadequate way of financing 

social insurance according to Bismarck’s principles, the social protection system causes 

inequalities among citizens included within that system while at the same time leaves many 

of vulnerable categories outside the system. However, one of the fundamental obligations 

of the state towards the International pact on economic, social and cultural rights as well as 

towards the European Social Charter is to guarantee the minimum socio-economic rights to 

any individual who is not able to secure a certain minimum by his/her work or engagement. 

Many of the shortcomings in guaranteeing socio-economic rights have been pointed at by 

the IPESCR Committees which in particular has appealed many times to BaH to strengthen 

its efforts in fighting unemployment through specially targeted programs. 

Given that Bosnia and Herzegovina is a complex state in the administrative sense and 

given its divided competencies pertaining to socio-economic rights, a better coordination 

of different levels of authority in the area of social policy is necessary in order to harmonize 

the regulations, remove discrimination of beneficiaries of different segments of social 

protection in the country, and spot inconsistencies and shortcomings in this area. To 

establish this coordination, we primarily need political will and determination of political elites 

to fulfill obligations undertaken by signing and ratifying international legal acts such as the 

International pact on economic, social and cultural rights and the European Social Charter 

but also the state and entities’ constitutional provisions so they are not just a dead letter. 

43


Chapter I 

1. General overview 

In the past two decades, Bosnia and Herzegovina (henceforth BaH) has gone 

through dramatic changes of economic and social structure. The war confl ict of 1992 

until the end of 1995 had devastating effects on the entire society, the consequences of 

which can still be felt. Human suffering, a large number of disabled people, the traumas 

of survivors, and shattered communities are the consequences of the four-year long 

confl ict. Given that there was no census in BaH after the war, the exact number of 

those who perished has not been established and for now, various estimates are being 

used. But regardless of this fact, it is known that the war caused great movement of 

the population within the country and a signifi cant number of people left the country 

due to political and socio-economic reasons. Despite signifi cant material aid from the 

international and domestic institutions, the return process in the postwar period was 

slow and insuffi cient. Due to the aforementioned facts, communities that existed before 

the war are hard to recover. Obliteration of the society, tolerance and coexistence, 

devastation of families and communities, derogation of social values and the usual way 

of life are the most tragic consequences of the confl ict that obviously cannot be erased 

in a short time period. 



During the war, BaH industry suffered a total collapse and most industrial 

capacities were damaged or completely destroyed. Direct material and economic 

damage has been estimated to US$50-60 billion, which means that most production 

capacities were completely destroyed (1) . The process of economic transition in BaH 

started relatively late, only after the war and its devastating effects on the entire 

economy of the country and its population. Due to the problems caused by the war 

destruction, economic transition, slow and ineffi cient privatization, BaH has a large 

number of offi cially unemployed workers. The formal economy still has no potential to 

absorb them so that they fi nd work in informal or grey economy. 

2. Current situation regarding socio – economic rights in BaH 

The right to work is one of the basic socio-economic rights that, unfortunately, 

in BaH has been denied to many. The table below shows that out of a total estimated 

population of work age between 15-65 years in 2008, only 27% were in a labor relation 

1 UNDP 2007 Human Development Report: Social inclusion in Bosnia and Herzegovina, p. 22. 

45


in the BaH Federation and 36% in the Republika Srpska. 



Table 1: Main indicators of the labor market in BaH 2005 – 2008 

2005 2006 2007 2008 X-2009 

Population. 15 – 64 FBaH* 1.576.172 1.578.223 1.580.494 1.580.494 1.579.827 

Population. 15 – 64 RS** - 760.000 762.000 717.000 717.000 

Number of employed 

people in BaH 

644.516 654.252 669.652 689.950 - 

- BaH Federation 388.413 389.601 413.676 430.745 425.873 


Number of unemployed 

people in BaH*** 

508.039 524.839 515.746 483.121 - 

- BaH Federation 347.478 362.368 367.570 345.381 351.444 


Active pop. BaH 1.152.555 1.179.091 1.185.401 1.173.071 - 

- Active pop. FBaH 735.891 751.969 781.246 776.126 777.317 

- Active pop. RS 384.955 392.245 392.443 392.279 

Activity rate in FBaH 0,46 0,47 0,49 0,49 0,49 

Activity rate in RS-u - 0,51 0,51 0,55 

Employment rate in FBaH 0,24 0,24 0,26 0,27 0.27 

Employment rate in RS - 0,32 0,33 0,36 

Unemployment rate in 

FBaH 

0,22 0,23 0,23 0,22 0.22 

Unemployment rate in RS 0,19 0,17 0,18 

*Estimates of the Federal Statistics Institute. 

** Estimates of the labor force survey 

*** Data inclusive of Brčko district data 

Source: Agency for work and employment of BaH, FBaH Statistics Agency, RS Republic 

Statistics Institute, Labor force survey (2008) and own calculations. 

As was expected, Bosnia and Herzegovina has a very high rate of reported 

unemployment. As can be seen in Table 1 the unemployment rate in 2008 in the RS is 

18% and 22 % in the BaH Federation. The more worrisome fact is that around 50% of 

the work-capable population in both entities is economically inactive, meaning they are 

in neither the registry of the employed nor the unemployed. High inactivity rate is one of 

the indicators of the scope of grey economy and illicit work (black work) in BaH. A large 

number of people who are registered as unemployed are in fact working in the grey 

economy, which is also indicated by many studies and surveys. According to the World 

Bank’s 2005 report, the share of unoffi cial sector in the total employment in BaH grew 

from 37% to 42% between 2001 – 2004, growing from 41 to 49% in the RS and from 33 

46


to 36% in the BaH Federation. 

Complete statistical data on employment and unemployment in BaH for 2009 

have not been completed yet. According to Ombudsman report for 2009, it is stated 

that the current socio-economic situation in the country is reflected onto an increased 

unemployment with the tendency of its further growth. This particularly targets younger 

people and is indirectly refl ected onto the rights of children and family life. The lack of 

any youth employment program is particularly worrisome. 

The area of social protection is extremely important for the exercise of socioeconomic 

rights in any country. It includes the area of social protection based on a 

labor relation such as unemployment insurance, pension and disability insurance, the 

area of social protection encompassing vulnerable population categories via different 

programs. 



The most important segment of social insurance and social protection in BaH is 

pension and disability insurance. The Table below shows that in BaH at the end of 2008, 

there were 551.974 pensioners, which is 14% of the estimated population (2) . 

Table 2: Relationship between pensioners and insurance holders (Health and Pension 

Insurance Fund members) in BaH Federation and Republika Srpska 

BaH Federation 

Republika Srpska 

Year 

Pensioners Insurance Pensioners/ Pensioners Insurance Pensioners/ 

holders Insurance 

holders Insurance 

holder 

holders 

2004 298.331 432.895 68,9% 186.188 286.984 64,8% 

2005 306.681 435.658 70,3% 189.741 281.928 67,3% 

2006 314.462 447.562 70,2% 195.069 289.214 67,4% 

2007 326.359 475.768 68,5% 202.564 304.956 66,4% 

2008 342.653 488.160 70,2% 209.321 311.362 67,2% 

Source: Federal Institute of Pension Insurance Fund Mostar and the Republika 

Srpska Pension Insurance Fund 

Given the fact that pension funds and expenses in both entities are fi nanced 

primarily from the pensioner and disability contributions of the working population (3) , 

a low number of formally employed, or a low number of insurance holders (shown in 

the Table 2), is the main cause of low contributions which results in low pensions in 

2 According to the BaH Statistics Agency estimate, the population of BaH in 2008 is 3.842.265 

3 Both entities’ funds function in accordance with the PAYG (Pay As You Go) principles of defi ned rights. 

47




the country. The minimum pension in Republic of Srpska is 160KM and in the BaH 

Federation it is 296KM. In BaH Federation, minimum pension is received by 51% of all 

retirees and most of them live on the verge of poverty. 

Table 3: Percentage of people who have received old- age pension and average amount 

of the pension divided by gender and age groups 

Age Groups 

Persons Who Received 

Old-Age Pension Related 

to the Total Population 

(%) 

Persons Who 

Received Old-Age 

Pension (%) 

Average Old-Age 

Pension (KM) 

Male Female Male Female Male Female 

< 55 1.09 0.76 6.78 11.54 221.54 119.19 

55-59 17.56 17.31 4.93 15.38 189.37 141.36 

60-64 55.64 23.07 24.67 30.71 160.63 140.89 

65-69 74.70 16.84 28.83 20.78 200.29 147.54 

70 + 65.78 11.28 34.80 21.60 203.63 150.13 

Total 12.71 4.88 100 100 192.57 141.84 

Source: Living Standard Measurement Survey LSMS (9.3.1) 

The upper table gives an estimate of old-age pension distribution based on the 

LSMS survey. It can be seen from the table that a lot smaller number of women receives 

pension in comparison to men. LSMS data show that an age cohort between 65 and 

69 years has the most pensioners and they receive the greatest amount of pensions. 

These retirees got their pensions before the war in the system that was well regulated. 

This survey, however, indicates great gender differences, especially with the group of 

retirees older than 60. There are signifi cantly less women than men who have old-age 

pensions and their amount is signifi cantly lower than men’s. 

It is obvious that problems of being not covered by pension insurance, which 

existed before the war, in the previous system which was functioning well, still exist 

today. As in the prewar period, today most of the rural population has not been 

covered by pension insurance since those who pay contributions for themselves 

or are formally employed are rare. The other group is only the employees who 

often earn low income from their activity and cannot afford to pay contributions. 

Ombudsman’s 2009 report for BaH states that in the fi eld of pension and 

disability insurance, there is still discrimination of pensioners as a direct consequence 

of the war. This is manifested in the way that pensioners, with regard to the entity they 

live in, do not have the same basis for pension calculation although that pension was 

earned in accordance with the same law and in a single economic and administrative 

48


legal area of the ex Socialist Republic of Bosnia and Herzegovina (SRBaH). An 

additional problem is created if there are pensioners who realized the right to pension 

in some of the new states created after the breakup of ex-Yugoslavia (SFRJ) or had 

realized that right in BaH and then moved to live in one of those states. Automatically, 

the problem of realizing the right to pension raises the issue of their healthcare since 

health insurance cannot be transferred. 

The healthcare system in BaH goes along the territorial and administration 

scheme of the entities and cantons so there are 13 ministries of health in the country 

and 13 health insurance funds. The system in place, however, impedes an adequate 

approach of citizens to this right. Citizens have a different approach given the territory 

where they live as the right to healthcare is not transferable and can only be realized in 

the place of residence. This principle is harmful for citizens who temporarily live outside 

of the place where they have been reported, such as mentally challenged persons, for 

instance, who are placed in institutions outside of the territories where these patients 

have health insurance. Pensioners and students have a similar problem. Furthermore, 

many people in BaH do not have health insurance. According to 2005 estimates, 54% of 

the RS population had health insurance while at the same time in the BaH Federation, 

this amount was slightly larger amounting to 80% (4) . In most cases paying co-payment 

for healthcare is necessary even for those who have insurance. This further aggravates 

approach to healthcare especially to those with irregular income. 



The education system in BaH is also divided by the entities, or, in the BaH 

Federation by the cantons. For the time period between the percentage of literacy in 

BaH was estimated to 96,7 (5) , which is a fairly high percentage and is attributed to 

the legacy of a well developed system of education that was in place before the war. 

Still, there is a negative tendency of those students who fi nish primary school to give 

up on education too early, which is going to have negative consequences for their 

future position on the job market and may result in poverty. According to the GTZfi 

nanced report on youth in BaH, (6) the net rate of high school enrolment is 76.2%, and 

only 54% of students fi nish their high school education with the given time period. The 

higher education enrolment is 24%, and only 10% of all enrolled fi nish higher education 

(college, university). 

4 “Social Protection and Social Exclusion in Bosnia and Herzegovina”, p. 119 

5 United Nations Educational, Scientifi c, and Cultural Organisation (UNESCO) Institute for Statistics. 2006. 

World Education Indicators, Literacy Statistics, Paris: UNESCO, cited in „Social Protection and Social 

Inclusion in Bosna and Herzegovina“, p. 24. 

6 Analysis of youth position in Bosnia and Herzegovina; Commission for Youth Issues in Bosnia and 

Herzegovina, May 2008, cited in „Social Protection and Social Inclusion in Bosnia and Herzegovina“, p.24. 

49




There are meaningful indicators of an unequal approach and no equal opportunity 

in the BaH education system. Also, there are meaningful differences in enrolment rates 

of children from families of different income, where a lower rate of children from poorer 

families was observed (7) . Furthermore, children with special needs have a problem of 

access to education. Only 1% of children with special needs go to regular schools. 

A limited access to education also holds true for certain ethnic groups. International 

organizations dealing with Roma issues estimate that less than 15% of Roma children 

have been integrated in the BaH education system, although recently, there has been 

an increase in the number of Roma children in schools. Helsinki Committee for Human 

Rights in BaH estimates that 70% of Roma children have never sat in the class. The 

main factors limiting Roma children’s access to education are an extremely high rate 

of poverty, inability of parents to pay for education costs, using children to work, their 

maltreatment at school, and language barriers since most Roma children do not speak 

the offi cial languages of BaH well. 

A signifi cant problem in the BaH education system is an ethnically exclusive 

curriculum, which forces some parents to send their children in other, more appropriate 

schools. It is estimated that in 2002, between 5 000 and 10 000 children crossed 

entity and cantonal boundary lines to get the education of desired ethnic curriculum (8) . 

Furthermore, in BaH we still have two or three schools under one roof although 

UN committees asked BaH to take measures to remove this model that leads to 

discrimination and segregation of school children according to the ethnic principle. 

Refugees and internally displaced persons (IDP´s) are an especially vulnerable 

group in terms of exposure to poverty and all other types of discrimination. An even 

more vulnerable group of returnees are women, single moms and the elderly. Regarding 

return of refugees and IDP´s to their prewar homes of origin, BaH, with the assistance of 

international aid, has made progress in terms of restructuring and rebuilding of houses 

and apartments. Progress has also been made in the sense that entity budgets are 

adjusted every year as to allow fi nancing of those purposes. 

Aside from the programs of reconstruction of returnees’ residence areas and 

housing and programs for providing housing to veterans, there is no general housing 

policy in the country. In contrast to the ex-country with a developed housing policy, in 

Dayton BaH, housing policy, as a segment of social policy, is under the entity or, in BaH 

7 LSMS 2001 

8 Access to Education, Training and Employment of Ethnic Minorities in Western Balkans: Country Report for 

Bosnia and Herzegovina; Silvija Railic, European Academy Bolzano (EURAC), cited in „Social Protectiona 

and Social Inclusion in Bosnia and Hrzegovina“ p.24. 

50


Federation, cantonal jurisdiction and is completely neglected. This is particularly true in 

the BaH Federation. The problem of an insuffi cient number of housing units was also 

present in BaH before the war. 

According to the estimates for 2004, 82,4% of households in BaH has ownership 

over a house or a fl at, which is a signifi cant increase in relation to 2001, when this 

percentage was 70% (9) . According to the same estimates in 2004, 4.6% of households 

lived in rented accommodation, while 2.8% were in temporary accommodation, 1.1% 

in the refugee accommodation and 0.3% were illegally inhabiting someone else’s 

property. However, the estimate of quality and living conditions in these housing units 

is another story. The Table below shows that only 24.6% of households have very good 

living conditions, which together with the percentage of households living in adequate 

conditions makes up the total of 85% of households living in generally adequate 

housing conditions. The remaining households, around 15%, live in inadequate, partly 

devastated or devastated conditions. 



Table 4: Housing conditions in Bosnia and Herzegovina in 2004 (10) 

Housing conditions: RS (%) FBaH (%) BaH (%) 

Very good 20.6 28.1 24.6 

Adequate for living 60.5 60.1 60.5 

Inadequate for living 12.9 7.5 10 

Partially devastated 2 1.6 1.8 

Devastated 0.6 0.5 0.6 

In the process of reconstruction 2.9 2.2 2.5 

Housing programs in Republika Srpska fi nanced from the entity and in BaH 

Federation mostly by cantons, are as a rule intended for the veteran and disabled war 

veterans. The Ombudsman’s 2009 report for BaH stated that no adequate measures 

have been undertaken as to establish adequate housing system and there was next to 

none application of recommendations made by the UN Committee for economic, social 

and cultural rights according to which the state had an obligation to adopt the housing 

law at the state level as well as the state housing strategy to resolve the population’s 

housing needs. The Committee also recommended that the member state allocate 

suffi cient resources to provide social housing especially for those with lower income, 

the poor and marginalized groups. 

9 Living in Bosnia and Herzegovina; Panel Study, Wave 4; Birks, Sinclair and Associates adn IBHI; DIFD. 

cited in „Social Protection and Social Inclusion in Bosnia and Herzegovina, p. 57 

10 Ibid. 

51




It is important to say that the Ombudsman 2009 report for BaH states that the 

country did not undertake enough measures to protect the environment and to assure 

management of public goods without discrimination. The issue of giving public goods 

to use has not been adequately covered by the law which is suitable for ‘privileged 

individuals’ and leaves a possibility of corruption. In an economic-social sense, this 

raises the issue of distribution of national wealth among all citizens. The practice 

has indicated a great degree of exclusion of women and children from the process 

of decision making on national wealth such as the energetic sector, water potential, 

forests etc. Furthermore, there is no environment awareness in BaH on the citizens’ 

needs to protect the environment nor are there any effi cient programs in this area. As a 

result, access to drinking water in some parts of the country is diffi cult. 

3. Legal framework and applicability of provisions 

European human rights and fundamental freedoms convention, together with 

its protocols, is a constitutive part of the Annex IV of the Dayton Peace Accord, which is 

the constitution of BaH, From socio-economic rights the text of the Constitution (Article 

3) protects the right to property and the right to education, while in the Annex 1 of the 

Constitution, the International pact on economic, social and cultural rights was quoted 

as an additional human rights agreement that is to be applied in BaH. The area of 

social policy defi ning the protection, access and assurance of the most important part 

of socio-economic rights in every country is under the entity jurisdiction according to the 

BaH Constitution. 

The BaH Federation Constitution in Article 2 guarantees application of the 

highest level of the internationally recognized rights and freedoms established by the 

acts quoted in the Annex, and the socio-economic ones are: protection of family and 

children, protection of property, education, social protection, healthcare, food, shelter. 

Articles 3 and 4 guarantee the rights of all refugees and displaced persons to free return 

to their homes of origin, as well as the right to the property that was taken from them 

during the ethnic conflict as well as compensation of all of their property that cannot be 

returned to them. Also, all statements and obligations given and taken under force during 

the conflict, especially those concerning giving up their right to land and other property 

are considered null and void. Furthermore, the Annex of the BaH Federation Constitution 

quotes the European Social Charter from 1961 and the additional protocol I as well as the 

International pact on economic, social and cultural rights as instruments for protection of 

human rights that have legal force of constitutional provisions in this entity. 

According to the BaH Federation Constitution, the social policy has been in 

52


a divided competence of entities and cantons, which means that the entity of BaH 

Federation cannot make provisions in this area without the cantons’ approval. By the 

same token, 10 cantons in BaH Federation can, in accordance with their abilities, bring 

special provisions from this area, which can guarantee greater rights than those defi ned 

by the entity provisions. 

The Republika Srpska Constitutions has more explicit provisions regarding 

socio – economic rights. Article 35 defi nes the right to healthy environment, Article 36 

prescribes special protection of family, mothers and children and special protection 

of juvenile persons without parental care, Article 37 defi nes the right to protection of 

health and right to healthcare, where children, pregnant women and the elderly are 

entitled to free healthcare (fi nanced from the public funds), Article 38 guarantees the 

right to education and free primary education, Article 39 guarantees the right to work, 

Article 43 defi nes the right to social security, social insurance and social aid for those 

who are unable to work and have no resources for subsistence. In contrast to the BaH 

Federation, the area of social policy in Republika Srpska is exclusively under the entity 

competence. 



Aside from the constitutional provisions on the right to work defi ned by the 

Republika Srpska Constitution and the provisions of the International pact on economic, 

social and cultural rights, the provisions of which are to apply according to the BaH 

Federation Constitution, the right to work has been defi ned by the entity labor provisions. 

However, due to the problems caused by the war destruction and economic transition, 

many people of a working age have been deprived of the right to work. Employment 

bureaus, whose job would have to be mediation in employment, education and retraining 

of unemployed workers so they could gain new skills and knowledge to fi nd 

work more easily has only come down to registering unemployment. Most people 

registered with employment bureaus do it for the sake of free healthcare. The state, 

along with other levels of power does not do much to create new jobs nor does it 

develop conditions for the development of entrepreneurship that should lead to more 

employment. With respect to the right to work, the most vulnerable groups are youth, 

women, returnees and ethnic minorities such as Roma. According to the Ombudsman’s 

2009 report, returnees in certain part of BaH have been denied the possibility to fi nd 

work or they have been otherwise prevented from getting an income which directly 

infl uences the fl ow and speed of return. 

Bosnia and Herzegovina, in general, had a very well developed system of social 

protection in the former SFRJ which guaranteed and secured most socio-economic 

rights. The current social insurance system, which has been insuring against risks, old 

age, disability, unemployment and healthcare, has been defi ned by specifi c provisions 

53




for every of these areas and founded on the Bismarck’s principle inherited from the 

former system of old age pension program fi nanced by a tax on workers. As provisions 

from the social policy area are in the entities’ competence, different entity provisions 

defi ne it. As the basic wage rate on which one pays for social insurance is different, so 

are the social insurance rates and the entitlements. For example, minimum pension 

that was in both entities defi ned by the law to protect the most vulnerable categories of 

pensioners , in the RS is 160KM while in BaH Federation it is 296KM. Main differences 

in terms of organization of social insurance in the entities is in the area of healthcare 

and mother-and-child insurance. Namely, contributions for child-care in the RS is 

a tax on workers and is paid by the rate of 2%, out of which a full compensation is 

paid to women who are on maternity leave. In the BaH Federation, there is no such 

contribution and compensation of salary during maternity leave is paid according to 

cantonal provisions, and some cantons do not even pay it. According to the general 

labor provisions, an employer from the BaH Federation is not obliged to pay a salary to 

a woman on maternity leave, to which she is entitled by the law for a year after she has 

given birth. For the reason of not getting such a pay during maternity leave, few women 

decide to take a longer maternity leave. 

Healthcare in the BaH Federation is under the cantonal competence so there 

are 11 of ministries of health and 11 pension funds in this entity. Health insurance is 

paid by the place of the member’s residence. The biggest problem is that insurance 

is non-transferrable so a person working in one canton with a place of residence in 

another does not have health insurance, which means that he or she has to pay for 

healthcare services as if she or he was completely without insurance. The problem of 

non-transferability of healthcare also exists between the entities, which is particularly 

diffi cult for retired returnees. 

Health insurance in both entities has been defi ned in accordance with the 

Bismarck’s principle which means that for every benefi ciary, someone pays a contribution. 

People who are not in a labor relation can be insured on a voluntary basis; health 

insurance contributions for the unemployed registered with the employment bureau 

and fulfi lling the necessary conditions are paid by the bureau while health insurance 

for pensioners is paid by the pension insurance fund. For socially vulnerable groups, 

healthcare insurance is paid by social work centers etc. Still, in both entities, we have 

a signifi cant number of people who do not have health insurance and have to pay for 

healthcare out of their own pockets according to the pricelist approved by the ministry in 

charge. Given the fact that BaH is a country where the right to work is denied to many, 

many people fi nd it diffi cult to secure minimum existence and paying for healthcare is 

a luxury they cannot afford. But it is important to mention that according to the entities’ 

healthcare laws, urgent medical assistance is free and everyone is entitled to it. 

54


According to the entity laws, social welfare is meant for the people who, due to 

their fi nancial situation, being unemployed, disabled etc. do not have enough resources 

to live. Social welfare is distributed via municipal social work centers. This segment 

of social protection is underfi nanced and ineffi cient in targeting socially vulnerable 

categories. The World Bank (2006) estimated that social transfer reach only one fourth 

of the poor. The same entity provisions guarantee fi nancial aid to the disabled, which is 

realized according to different criteria. In the BaH Federation, this amount is fairly high 

and amounts from 90 to 400KM regardless of the benefi ciary’s fi nancial situation, while 

in Republika Srpska; this compensation is only 40KM and is allocated only to those 

whose family income is below the threshold. Even those registered as the civilian war 

victims with certain non-governmental organizations are entitled to fi nancial aid. The 

amount of these compensations is signifi cantly higher in the BaH Federation than in 

Republika Srpska. According to the Ombudsman’s 2009 report for BaH, returnees with 

a civilian war victim status returning to Republika Srpska are particularly victimized. 

This happens because the relevant law in the BaH Federation regulates that such 

entitlements are only for those whose place of origin is in the territory of the BaH 

Federation, while the law in Republika Srpska prescribes that entitlements of civilian 

war victims cannot be realized by people who at any times realized those rights in the 

BaH Federation. 



It is important to mention that veteran compensations are signifi cantly bigger 

than the compensations received by other population categories. So most fi nancial 

transfers go to fi nance the rights of demobilized soldiers and veterans, which is 

particularly the case in the BaH Federation. In the BaH Federation, there are two laws 

regulating this area while in Republika Srpska, there is only one. 

55


4. Conclusion 



Despite constitutional and legal provisions guaranteeing and protecting 

socio-economic rights, BaH is a state where many people are bereft of their basic 

socio-economic rights. The most vulnerable groups are the elderly without pensions, 

unemployed women, youth, children and others. Pensioners are also a vulnerable 

group because the pensions are so low and can hardly suffi ce for basic human needs. 

The way in which entity systems of social welfare are organized cannot secure 

protection and insurance of socio-economic rights of the entire population. Many 

socially vulnerable people have not even been detected as such by adequate services, 

while those receiving some kind of social aid receive different amounts depending on 

the canton or entity they live in. 

Social insurance system that has been divided by the entity line, aside from 

being segmented, has not adjusted to the new market conditions characteristic for 

postindustrial societies. Thus, people who are not employed have no social insurance, 

which means they have no health insurance nor will they have necessary conditions for 

retirement when they grow old. 

Social welfare provisions will have to be harmonized at the state level or by interentity 

agreements so that basic wage rates for paying contributions and contribution 

rates for pension insurance are equalized, which would lead to more equal rights of the 

socially vulnerable categories and eliminate discrimination in this area. The state and all 

levels of authority have to do more to secure socio-economic rights such as possibility 

of work or social welfare, health insurance, adequate housing etc. to those who have 

no income and live on or below the poverty line. 

56


Chapter II 

1. International instruments for the protection of socio-economic 

rights 

Basic international acts guaranteeing socio-economic rights are the 

International pact on economic, social, and cultural rights (IPESCR) and the European 

Social Charter. These are the right to work and employment (Article 6 IPESCR and 

Article 1 of the Charter), the right to social insurance (Article 9 IPESCR and Articles 

12, 13, 14. and 23 of the Charter), the right to an adequate standard of living such as 

adequate food, clothing and residence and the constant improvement of living (Article 

11 IPESCR), right to an adequate healthcare (Article 12 IPESCR, Articles 11 and 13 of 

the Charter), the right to education (Article 13 IPESCR), and the more precisely defi ned 

rights of family to enjoy social, legal and economic protection (Article 16 of the Charter), 

the rights of elderly to enjoy social protection (Article 23 of the Charter). 

Socio-economic rights have been drafted in such a way so that the state is obliged to 

respect them, protect them and fulfill them. The respect means the state cannot interfere 

with individual freedoms of any individual; the protection means the protection of any 

individual’s right, while the duty of fulfi llment requires the state to secure a minimum of 

socio-economic rights to any individual who is not able to secure this minimum by his/ 

her own engagement. The duty of the state to secure or guarantee a certain minimum 

of these rights is one of the fundamental socio-economic rights according to the 

International pact on economic, social, and cultural rights (IPESCR) and the European 

Social Charter. 



2. Implementation of European Social Charter in BaH 

European Social Charter is the most important document regulating realization 

of economic and social rights in the European Union (EU) and the Council of Europe 

countries. European Social Charter as a fundamental European document speaking 

about social rights was signed in Turin in 1961 and it came into force in 1965. The 

series of amendments, especially in the late 1980s and in 1990s, resulted in adding 

more rights to the original text and the implementation and control mechanisms in the 

undertaking countries were stated more precisely. It is about the following documents: 

Additional Protocol to the European Social Charter (1988), The Protocol Amending the 

European Social Charter (1991) and Additional Protocol to the European Social Charter 

establishing a system of collective (1995). The new document, the so-called Amended 

or Revised European Social Charter, which integrates the changes made and ads eight 

57




more rights was signed in 1996 and came into force in 1999. There are three basic 

groups of rights protected by the Charter: 

1. workplace rights 

2. special protection of particularly vulnerable groups 

3. universal social protection of the entire population 

The amended charter protects a total of 31 basic rights, 9 of which are core: the 

right to work, the right to organize, the right to collectively negotiate, the right of family 

to enjoy social, legal and economic protection, the right of migrants and their families 

to protection and aid, the right to social security, the right to social and medical aid, 

the right of children and youth to enjoy protection, the right to equal opportunity and 

conditions regarding employment and profession without gender discrimination. Out of 

the nine core rights, the undertaking countries have to accept at least 6 rights, or the 

total of at least 16 Articles or 63 paragraphs. 

Bosnia and Herzegovina ratifi ed the Charter in 2008 by which it took the 

obligation of harmonizing the domestic legislation and practice with the standards 

prescribed by the charter- The implementation and protection of the rights defi ned by 

the Charter is one of the conditions that BaH has to fulfill in the process of the EU 

accession. The socio-economic rights guaranteed by the Charter ratifi ed by Bosnia and 

Herzegovina include the following provisions: 

Article 1. - The right to work 

With a view to ensuring the effective exercise of the right to work, the Parties under take: 

1. to accept as one of their primary aims and respon sibili ties the achieve ment and 

maintenance of as high and stable a level of employ ment as possible, with a 

view to the attainment of full employment; 

2. to protect effectively the right of the worker to earn his living in an occupation 

freely entered upon; 

3. to establish or maintain free employ ment services for all work ers; 

4. to provide or promote appropriate vocational guid ance, training and rehabilitation. 

Article 11. - The right to protection of health 

58


With a view to ensur ing the effective exercise of the right to protection of health, the 

Parties under take, either directly or in co-oper ation with public or private organizations, 

to take appropriate measures designed inter alia: 

1. to remove as far as possible the causes of ill-health; 

2. to provide advisory and educa tional facilities for the promotion of health and the 

encouragement of individ ual responsibility in matters of health; 

3. to prevent as far as possible epidemic, endemic and other diseases, as well as 

accidents. 



Article 12. - The right to social security 

With a view to ensuring the effective exercise of the right to social secu rity, the Parties 

undertake: 

1. to establish or maintain a system of social security; 

2. to maintain the social security system at a satisfactory level at least equal to that 

necessary for the ratification of the European Code of Social Security; 

Article 13. - The right to social and medical assistance 

With a view to ensuring the effective exercise of the right to social and medical assistance, 

the Parties under take: 

1. to ensure that any person who is with out adequate resources and who is unable 

to secure such resources either by his own efforts or from other sourc es, in 

particular by benefits under a social security scheme, be granted adequate 

assis tance, and, in case of sickness, the care necessitated by his condition; 

2. to ensure that persons receiving such assis tance shall not, for that reason, suffer 

from a diminu tion of their political or social rights; 

3. to provide that every one may receive by appropriate public or private servic es 

such advice and personal help as may be required to pre vent, to remove, or to 

alleviate per sonal or family want; 

Article 14. - The right to benefit from social welfare services 

With a view to ensuring the effective exercise of the right to benefit from social welfare 

59


servic es, the Parties under take: 



1. to promote or provide services which, by using methods of social work, would 

contribute to the welfare and develop ment of both individuals and groups in the 

community, and to their adjust ment to the social environ ment; 

2. to encourage the partici pation of individuals and voluntary or other organizations 

in the establishment and maintenance of such services. 

Article 16. - The right of the family to social, legal and economic protection 

With a view to ensuring the necessary conditions for the full development of the family, 

which is a fundamen tal unit of society, the Parties under take to promote the economic, 

legal and social protection of family life by such means as social and family benefits, 

fiscal arrangements, provision of family housing, benefits for the newly married and other 

appropri ate means. 

Article 17. - The right of children and young persons to social, legal and 

economic protection 

With a view to ensuring the effective exercise of the right of children and young persons 

to grow up in an environment which encourages the full development of their 

personality and of their physical and mental capacities, the Parties undertake, 

either directly or in cooperation with public and private organizations, to take all 

appropriate and necessary measures designed: 

1. a.) to ensure that children and young persons, taking account of the rights 

and duties of their parents, have the care, the assistance, the education 

and the training they need, in particular by providing for the establishment 

or maintenance of institutions and services sufficient and adequate for this 

purpose; 

b.) to protect children and young persons against negligence, violence or 

exploitation; 

c.) to provide protection and special aid from the state for children and young 

persons temporarily or definitively deprived of their family’s support; 

2. to provide to children and young persons a free primary and secondary 

education as well as to encourage regular attendance at schools. 

60


Article 20. - The right to equal opportunities and equal treatment in matters of 

employment and occupation without discrimination on the grounds 

of sex 

With a view to ensuring the effective exercise of the right to equal opportunities and 

equal treatment in matters of employment and occupation without discrimination on the 

grounds of sex, the Parties undertake to recognize that right and to take appropriate 

measures to ensure or promote its application in the following fields: 

1. access to employment, protection against dismissal and occupational 

reintegration; 

2. vocational guidance, training, retraining and rehabilitation; 

3. terms of employment and working conditions, including remuneration; 

4. career development, including promotion. 



Article 23. - The right of elderly persons to social protection 

With a view to ensuring the effective exercise of the right of elderly persons to social 

protection, the Parties undertake to adopt or encourage, either directly or in co-operation 

with public or private organizations, appropriate measures designed in particular: 

1. to enable elderly persons to remain full members of society for as long as 

possible, by means of: 

a adequate resources enabling them to lead a decent life and play an 

active part in public, social and cultural life; 

b provision of information about services and facilities available for 

elderly persons and their opportunities to make use of them; 

2. to enable elderly persons to choose their life-style freely and to lead 

independent lives in their familiar surroundings for as long as they wish and 

are able, by means of: 

a provision of housing suited to their needs and their state of health or 

of adequate support for adapting their housing; 

b the health care and the services necessitated by their state; 

3. to guarantee elderly persons living in institutions appropriate support, while 

respecting their privacy, and participation in decisions concerning living 

conditions in the institution. 

61




It is important to emphasize that the European Social Charter in the Article 12 on the 

right to social protection, item 2, makes it obligatory for the undertaking countries to 

maintain a system of social protection at a satisfactory level, guaranteeing the minimum 

defi ned by the European Code on Social Security. This document of the Council of 

Europe was signed in 1964 in Strasbourg and is an instrument of the Council of 

Europe intended for harmonization of social security legislation. European Code on 

Social Security was done with the technical support of the International Labor Office. 

It was drafted according to the model of Convention 102 on minimum social security 

standards, which, at the time, was the only conventional instrument of harmonization of 

legislation pertaining to the entire social security. 

Although they are trying to get protected, social rights are not fundamental human rights 

so the mechanisms of protection are weaker, less defi ned, especially in the sense there 

is no fi rm court mechanism such as the European Court of Human Rights. Despite this 

fact, the widening of the list of these rights in the 1990s was followed by an attempt to 

more clearly defi ne the control mechanism. Originally is rests on three pillars: 

- The states alone send reports on the respect of these rights which is then evaluated 

by the Board of independent experts. The board then brings its positive and negative 

conclusions on the respect of certain articles of the Charter. 

- The states’ reports and conclusions of the Board of independent experts are then sent 

to the Board of governments, which is consisted of representatives of certain states and 

observers (international organization of trade unions and employers). This Board then 

creates its report for the Board of ministers. 

- The Board of Ministers then brings a fi nal general resolution on the respect of the 

Charter along with a set of individual recommendations to the contracting parties. 

The Additional Protocol on the System of Collective Complaints has reduced the relative 

importance of the governmental reports since social partners are encouraged to fi le 

complaints directly to the Board of independent expert on their own. There are three 

groups of organizations fi ling complaints: 

1. international organizations of employers and employees which have advisory 

status at the Council of Europe; 

2. international non-governmental organizations which have advisory status at the 

Council of Europe and are on the special list of the Board of governments; 

3. Representative national organizations of employers and employees. 

62


There are many examples witnessing the fact that EU member countries either changed 

their legislation or practice based on the conclusions of the Board of independent 

experts, Board of governments or Board of ministers. By that token, the European 

Social Charter has demonstrated its importance and infl uence although the nature of 

social rights means that sanctions are more moral and not material. 

3. Implementation of the International pact on economic, social and 

cultural rights in BaH 



Provisions of the International pact on economic, social and cultural rights 

dealing with socio-economic rights include the following: 

Article 6 

1. The States Parties to the present Covenant recognize the right to work, which 

includes the right of everyone to the opportunity to gain his living by work which 

he freely chooses or accepts, and will take appropriate steps to safeguard this 

right. 

The steps to be taken by a State Party to the present Covenant to achieve the full 

realization of this right shall include technical and vocational guidance and training 

programs, policies and techniques to achieve steady economic, social and cultural 

development and full and productive employment under conditions safeguarding 

fundamental political and economic freedoms to the individual. 

Article 9 

The States Parties to the present Covenant recognize the right of everyone to social 

security, including social insurance. 

Article 11 

General comment on its implementation 

1. The States Parties to the present Covenant recognize the right of everyone to an 

adequate standard of living for himself and his family, including adequate food, 

clothing and housing, and to the continuous improvement of living conditions. 

The States Parties will take appropriate steps to ensure the realization of this 

right, recognizing to this effect the essential importance of international cooperation 

based on free consent. General comment on its implementation 

63




2. The States Parties to the present Covenant, recognizing the fundamental 

right of everyone to be free from hunger, shall take, individually and through 

international co-operation, the measures, including specifi c programs, which 

are needed: 

1. To improve methods of production, conservation and distribution 

of food by making full use of technical and scientifi c knowledge, 

by disseminating knowledge of the principles of nutrition and by 

developing or reforming agrarian systems in such a way as to achieve 

the most efficient development and utilization of natural resources; 

2. Taking into account the problems of both food-importing and foodexporting 

countries, to ensure an equitable distribution of world food 

supplies in relation to need. 

Article 12 


1. The States Parties to the present Covenant recognize the right of everyone to 

the enjoyment of the highest attainable standard of physical and mental health. 

2. The steps to be taken by the States Parties to the present Covenant to achieve 

the full realization of this right shall include those necessary for: 

1. The provision for the reduction of the stillbirth-rate and of infant 

mortality and for the healthy development of the child; 

2. The improvement of all aspects of environmental and industrial 

hygiene; 

3. The prevention, treatment and control of epidemic, endemic, 

occupational and other diseases; 

4. The creation of conditions which would assure to all medical service 

and medical attention in the event of sickness. 

Article 13 


64


1. The States Parties to the present Covenant recognize the right of everyone to 

education. They agree that education shall be directed to the full development 

of the human personality and the sense of its dignity, and shall strengthen the 

respect for human rights and fundamental freedoms. They further agree that 

education shall enable all persons to participate effectively in a free society, 

promote understanding, tolerance and friendship among all nations and all 

racial, ethnic or religious groups, and further the activities of the United Nations 

for the maintenance of peace. 

2. The States Parties to the present Covenant recognize that, with a view to 

achieving the full realization of this right: 



1. Primary education shall be compulsory and available free to all; 

2. Secondary education in its different forms, including technical and 

vocational secondary education, shall be made generally available 

and accessible to all by every appropriate means, and in particular by 

the progressive introduction of free education; 

3. Higher education shall be made equally accessible to all, on the 

basis of capacity, by every appropriate means, and in particular by 

the progressive introduction of free education; 

4. Fundamental education shall be encouraged or intensifi ed as far as 

possible for those persons who have not received or completed the 

whole period of their primary education; 

5. The development of a system of schools at all levels shall be actively 

pursued, an adequate fellowship system shall be established, and the 

material conditions of teaching staff shall be continuously improved. 

The States Parties to the present Covenant undertake to have respect for the liberty 

of parents and, when applicable, legal guardians to choose for their children schools, 

other than those established by the public authorities, which conform to such minimum 

educational standards as may be laid down or approved by the State and to ensure the 

religious and moral education of their children in conformity with their own convictions. 

. No part of this article shall be construed so as to interfere with the liberty of 

individuals and bodies to establish and direct educational institutions, subject 

always to the observance of the principles set forth in paragraph I of this 

article and to the requirement that the education given in such institutions shall 

conform to such minimum standards as may be laid down by the State. 

65


Article 14 




Each State Party to the present Covenant which, at the time of becoming a Party, 

has not been able to secure in its metropolitan territory or other territories under its 

jurisdiction compulsory primary education, free of charge, undertakes, within two years, 

to work out and adopt a detailed plan of action for the progressive implementation, within 

a reasonable number of years, to be fi xed in the plan, of the principle of compulsory 

education free of charge for all. 

According to the Article 2 (1) of International pact on economic, social and 

cultural rights, the states are obliged to gradually realize the rights guaranteed by the 

pact in the sense that a state is obliged to “Each State Party to the present Covenant 

undertakes to take steps, individually and through international assistance and cooperation, 

especially economic and technical, to the maximum of its available resources, 

with a view to achieving progressively the full realization of the rights recognized in 

the present Covenant by all appropriate means, including particularly the adoption of 

legislative measures.”As this provision of the Pact is very vague and open to multiple 

interpretations, the Committee tried to clarify it in the General Comment 3: 

“The term “progressive realization” is often used to describe the intent of this phrase. 

The concept of progressive realization constitutes recognition of the fact that full 

realization of all economic, social and cultural rights will generally not be able to be 

achieved in a short period of time. Nevertheless, the fact that realization over time, or in 

other words progressively, is foreseen under the Covenant should not be misinterpreted 

as depriving the obligation of all meaningful content. It is on the one hand a necessary 

fl exibility device, refl ecting the realities of the real world and the diffi culties involved 

for any country in ensuring full realization of economic, social and cultural rights. On 

the other hand, the phrase must be read in the light of the overall objective, indeed 

the raison d’être, of the Covenant which is to establish clear obligations for States 

parties in respect of the full realization of the rights in question. It thus imposes an 

obligation to move as expeditiously and effectively as possible towards that goal” (11) . 

Regardless of the clarifi cations of the general Comment 3 regarding the duties 

of progressive and gradual realization of rights, this concept prove to be too general 

as to allow an estimate of whether a states fulfi lled its obligations in a given situation 

and whether all adequate measure have been undertaken and all resources used. 

In this case, it is particularly hard to estimate how the state abides by the Pact and 

11 Committee of Economic, Social and Cultural Rights, General Comment 3, para. 9 

66


undertakes all measures for a progressive and gradual realization of the goals. This 

includes the need to develop standards for any right regarding social development, 

given each country’s resources and taking into account the complexity and diffi culties 

in establishing reliable and precise indicators to judge if these standards have been 

secured and alternative activities on the state behalf examined. 

Also, in the General Comment 3, the states are obliged to secure “minimum 

essential levels of each of the rights.” Furthermore, every state in which a signifi cant 

proportion of people have no possibility to satisfy the basic rights to food, healthcare, 

basic housing or education, we can say that this country prima facie does not fulfi ll its 

obligations towards the International pact (12) . The contents of minimum rights serve as 

a minimum lower threshold that holds true for all people in all situations. It contains 

necessary but not suffi cient contents of obligations towards the International pact as 

it is necessary for all states to progressively aspire to full realization of all social and 

economic rights. 



Every undertaking country is also due to gradually and progressively realized 

all rights and an obligation to secure minimum basic rights for its citizens to enjoy. 

However, it is every country’s obligation to immediately secure and guarantee the rights 

prescribed by the Pact without discrimination. 

Still, underdeveloped mechanisms of control of the implementation of economic 

and social rights result in weak international monitoring mechanisms. We can see 

from the General Overview that BaH does not fulfi ll most of its obligations towards the 

International pact. 

4. How to make progress? 

From the aspect of fulfi llment of obligations or rights guaranteed by the 

European Social Charter and the International pact on economic, social and cultural 

rights, it is an obligation of the every undertaking state, which means that the way in 

which these rights are to be fulfilled is an exclusive care of every state. That means that 

every state decides on the model of social protection for itself, in the way that best suits 

its political organization, tradition, specific problems burdening the state in question, its 

chosen political goals and the rest. 

Given that BaH in the administrative sense is a complex state with divided 

12 Ibidum, para. 10 

67




competences in the area of socio-economic rights, a better coordination of different 

levels of authority in the area of social policy is necessary in order to harmonize 

provisions and remove discrimination of benefi ciaries of different segments of social 

protection and identify inconsistencies and problems in this area. To establish this 

coordination, it is necessary to have political will in the fi rst place and determination 

of the political elite to fulfill obligations undertaken by the signing and ratifi cation of the 

international legal acts, such as the European Social Charter and the International pact 

on economic, social and cultural rights, but also the entities’ and state constitutional 

provisions so they would not be merely words. 

The basic problem for the fulfi llment of basic socio-economic rights is the low 

level of economic activity in the country and an extremely high unemployment rate. The 

ESKP Committee has already addressed Bosnia and Herzegovina to strengthen its 

efforts in fighting unemployment through specially targeted programs, including 

programs directed towards reduction of unemployment among youth, women, especially 

home makers, and unemployment among the poor and marginalized groups (13) . The 

Committee also expressed concern for the low representation of ethnic minorities at 

the labor market, especially Roma (Article5(e)(i)), which is why it recommended that a 

member state should improve employment of ethnic minorities, including Roma 

people in particular, in the public and private sector, through the implementation 

of strategies that will train and qualify these people for jobs available on the labor 

market, and by giving incentive to employers to hire such people, and establishing 

of an independent mechanism at the state level to address discrimination in employment 

and promotion in the public and private sector of employment/labor.78 

Low unemployment rate results in fi nancial instability of the system of social security, 

which will require budgetary fi nancing for its future existence. But that is only part of 

the problem. It is known that many people in BaH, aside from the right to work, are also 

bereft of the right to healthcare, education, have housing problems and other existential 

problems, which means they are deprived of socio-economic rights. The state, or the 

competent levels of authority, do not do enough to identify these categories and their 

needs. Social work centers and municipal level institutions inherited from the previous 

system are in charge of this work. Strengthening of social work centers in the future 

through the training of staff and material and technical equipment is necessary for the 

realization of this function. 

Vertical and horizontal interrelatedness and coordination of institutions at all 

levels of authority is necessary in order to fulfill the obligations and tasks undertaken by 

the Charter and the International pact. 

13 E/C.12/BaH/CO/1, Final remarks of the Committee on economic, social and cultural rights, item 35. 

68


5. Conclusion 

The provisions of the International pact on economic, social and cultural rights 

as well as the provisions of the European Social Charter offer a meaningful protection 

of socio-economic rights. Many countries have harmonized its legislation with their 

provisions and thus contributed to the growth of its population’s living standards, 

social inclusion, and development of democracy. Harmonization of legislation and its 

implementation with these important international acts carries not only the international 

recognition which places the country in the order of civilized societies, but also 

legitimized the states in the eyes of its citizens. 



Socio-economic rights cannot be fulfi lled overnight. Their fulfi llment has to 

be gradual and progressive, which has been stipulated by the International pact on 

economic, social and cultural rights. But every state can immediately undertake a set 

of measures, especially legislative ones, in order to establish an adequate system, 

which is to assure socio-economic rights of wider population categories, and especially 

of those members who by their work or engagement are unable to provide a minimum 

of social rights for themselves. It is important that these measures, or laws, are not 

planned to create discrimination among people of the same socio-economic status. 

Rather, these measures must help in dwindling social inequalities and help create an 

equal opportunity society. 

69


Chapter III 



Final Conclusions and recommendations 

Despite the internationally undertaken obligations resulting from the ratifi cation 

of the International pact on economic, social and cultural rights and the European Social 

Charter, neither the country of Bosnia and Herzegovina nor its entities do enough to 

guarantee, protect and fulfill socio-economic rights guaranteed by these international 

acts. 

At the same time, despite the undertaken international obligations, BaH has 

become a country where social inequalities grow bigger every day and where many are 

deprived of their basic socio-economic rights. The social protection network inherited 

from the previous system and now divided by the entity lines and in the BaH Federations, 

by cantons, is a cause of additional inequalities among different population categories. 

This is particularly the case with pays for healthcare, pensioners’ insurance, disability 

and civilian war victims and the rest. 

The social insurance system encompassing the risks of old age disability, 

health insurance, unemployment insurance etc. functioning according to the inherited 

Bismarck’s principles based on the labor relation, cannot assure adequate protection 

and cannot encompass larger population categories. The main reason for that lies 

in the fact that a relatively small number of workable population is employed, which 

means that they are socially insured. Another problem lies in the fact that the BaH 

labor market, aside from a huge number of those working in the grey economy, is more 

and more characterized by temporary and occasional work, as well as new forms of 

work characteristic for the postindustrial society. The area of social insurance is to be 

adjusted to these new forms of labor and we need to fi nd a way to include those working 

in the grey economy into the social insurance system, primarily healthcare. 

The easiest way to assure an adequate protection of rights of the socially 

vulnerable categories is through the model of harmonized decentralization. Social work 

centers inherited from the previous system are in charge of identifi cation and assistance 

to socially vulnerable categories, but their success and ability to perform these tasks 

depends primarily on the economic power of their respective municipality, abilities and 

sensitization of their staff as well as positive provisions in a given entity or canton. 

Social work centers will have to hire additional staff and invest money into their IT and 

material equipment so they could respond to the challenges of this work. On the other 

hand, harmonization of principles in this area is necessary to eliminate the present 

discrimination of benefi ciaries depending in their place of residence. Entity level laws 

70


have to be harmonized guaranteeing minimum rights and have to be in accord with the 

provisions of the European Social Charter, the International pact on social, economic 

and cultural rights as well as with other ratifi ed international legal acts. 

Horizontal and vertical coordination of all levels of authority in charge of 

social policy is necessary to harmonize the policies and provisions in this area, to 

identify weaknesses and failures and to come up with the most adequate model of 

guaranteeing, protection, and assurance of socio-economic rights in the country. Every 

level of authority in BaH has to do much more in the future to fulfi ll these goals. 



One of the obligations undertaken by the ratifi cation of the European Social 

Charter and the International pact on social, economic and cultural rights implies 

regular reporting on the fulfillment of the undertaken obligations. In this sense, the state 

ministries in charge of this area, as well as the entity ministries that also are partly 

obliged to act on these issues, need to receive additional education so these obligations 

are regularly met and so as to assure adequate communication with the relevant 

international committees. In general, a better cooperation in this area can secure an 

exchange of experiences and transfer of knowledge whereby the area of social policy, 

i.e. protection, guaranteeing and securing of socio-economic rights can be signifi cantly 

improved. 

71


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Herzegovina, and Republic of Srpska’s Statistics Institute: Living Standard 

Measurement Survey (2001). Taken from BaH Federation’s Statistics Institute 

website: http://www.fzs.ba/Eng/lsmse.htm 

- European Social Charter 

- European Commission (2009), Social Protection and Social Inclusion in Bosnia 

and Herzegovina 2008. 


Accessed on December 1, 2009 from : http://shr.aaas.org/thesaurus/instrument. 

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Bosnia and Herzegovina: Law, practice and international standards of human 

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mnijenja). Accessed on December 7, 2009 from: http://www.hrc.unsa.ba/ 

hrr2008/PDFS/ljudskapravauBaH2008.pdf 

- International pact on economic, social and cultural rights 

- Ombudsmen for human rights in Bosnia and Herzegovina (2009): Universal 

periodical survey of human rights in Bosnia and Herzegovina. Accessed on 

December 7, 2009 from http://www.ombudsmen.gov.ba/materijali/UPR%20 

bosnian%20language.pdf 

- Constitution of Bosnia and Herzegovina 

- BaH Federation Constitution 

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skupstinabd.ba/ustavi/rs/ustav_hrvatski.pdf 

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Role of Industrial Relations. Taken from www.worldbank.ba 

- World Bank (2006): Bosnia and Herzegovina – Fiscal Challenges and 


Institution. Accessed from www.worldbank.ba 

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Bibliography 



- BaH Federation’s Statistics Institute, Agency for Statistics of Bosnia and 

Herzegovina, and Republic of Srpska’s Statistics Institute: Living Standard 

Measurement Survey (2001). Taken from BaH Federation’s Statistics Institute 

website: http://www.fzs.ba/Eng/lsmse.htm 

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- European Commission (2009), Social Protection and Social Inclusion in Bosnia 

and Herzegovina 2008. 


Accessed on December 1, 2009 from : http://shr.aaas.org/thesaurus/instrument. 

php?insid=26 

- Center for human rights of the University of Sarajevo (2009): Human Rights in 

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bosnian%20language.pdf 

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72

ZAÅ TITA PRAVA U BOSNI I HERCEGOVINI - Solidar

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