• Research
  • Emissary
  • About
  • Experts
Carnegie Global logoCarnegie lettermark logo
Democracy
  • Donate
{
  "authors": [
    "Maksim Samorukov"
  ],
  "type": "commentary",
  "centerAffiliationAll": "",
  "centers": [
    "Carnegie Endowment for International Peace",
    "Carnegie Russia Eurasia Center"
  ],
  "collections": [],
  "englishNewsletterAll": "",
  "nonEnglishNewsletterAll": "",
  "primaryCenter": "Carnegie Endowment for International Peace",
  "programAffiliation": "",
  "programs": [],
  "projects": [
    "The Return of Global Russia: A Reassessment of the Kremlin’s International Agenda"
  ],
  "regions": [],
  "topics": [
    "Economy"
  ]
}

Source: Getty

Commentary

Croatia: Moscow’s New Ally, or a Brief Fling?

Despite a large-scale visit by the Croatian leadership to Russia, we shouldn’t expect breakthroughs in bilateral collaboration, or to see Croatia turn into a close Russian ally. Sanctions, falling oil prices, and long-term stagnation in both countries can’t be overcome by presidential meetings, and real economic ties between the two countries are still modest.

Link Copied
By Maksim Samorukov
Published on Oct 27, 2017
Project hero Image

Project

The Return of Global Russia: A Reassessment of the Kremlin’s International Agenda

The Kremlin’s activist foreign policy is expanding Russian global influence at a time when the United States and other Western countries are increasingly divided or consumed by domestic problems.  The Return of Global Russia project will examine the Kremlin’s ambitions to become a player in far-flung parts of the world where its influence has long been written off, the tools it is relying upon to challenge the liberal international order, and practical Western policy options for how and when to respond to this new challenge.

Learn More

Russia has accomplished a new political maneuver in the Balkans. While everyone was trying to evaluate Russia’s influence in Montenegro and Macedonia, Moscow unexpectedly began to align itself with one of the most pro-American nations in the region: Croatia.

Croatian President Kolinda Grabar-Kitarović spent a full three days in Russia (October 18–20), meeting with both President Vladimir Putin and Prime Minister Dmitry Medvedev, among other senior figures. In the meantime, 150 Croatian businessmen attended a business forum in Moscow devoted to collaboration between Russia and Croatia. Such an extensive program hasn’t even been rolled out for Serbia, Russia’s closest Balkan ally.

The main event of the visit—the presidential meeting in Sochi on October 18—didn’t produce any radical results, but it wasn’t expected to. Both sides profited from the mere fact of the meeting.

The meeting helps Moscow dispel any notion of being isolated from Europe over the Ukraine crisis. Just two years ago, a report that a European leader had traveled to meet Putin would have sounded like an accusation. Now it’s just news.

A personal meeting with Putin is a temptation impossible to resist for Grabar-Kitarović, just as it is for most leaders of Central Eastern Europe. At other times, Putin is an aggressor and a tyrant who must be isolated. But the minute a personal meeting is on the books, it becomes the most important diplomatic event of the year. Who cares about isolation when they have the chance for a photo-op with Putin himself, sending the message to voters that their leader is at the center of global geopolitics?

Yes, Croatia is a parliamentary republic, and the prime minister holds more power. But President Grabar-Kitarović is a special case. Not many leaders of hard-up nations with a population of 4 million manage to hold personal meetings with the Chinese, Russian, and American leaders in the space of a few months, but Croatia’s president has done just that.

Grabar-Kitarović, who has served as minister of foreign affairs and as assistant to NATO’s secretary general, is very active in the international field. At the Sochi meeting, she even offered to act as a mediator between Russia and NATO, as she will soon travel to Washington for a meeting with U.S. President Donald Trump.

Much as both presidents love geopolitics, however, diplomatic reasons alone wouldn’t have been enough to organize such a massive visit. Another factor in Russo-Croatian relations came into play this year: the 1.3 billion euros that collapsing Croatian company Agrokor owes Russian state-controlled banks Sberbank and VTB.

Agrokor, a huge holding company mostly made up of food manufacturers and commercial chains, was created amid the turmoil of the 1990s by oligarch Ivica Todorić. By the start of 2017, Agrokor employed about 60,000 people across the Balkans, plus tens of thousands of suppliers. In total, it was responsible for about 16 percent of Croatia’s GDP. So, when Agrokor started going bankrupt in spring 2017, having failed to withstand competition from Western European chains following Croatia’s entry into the EU in 2013, the Croatian government was forced to intervene and introduce government oversight of the company.

At about this time, it emerged that Sberbank and VTB were among Agrokor’s biggest creditors, prompting fresh accusations of Russian interference in Balkan affairs. A simple comment from Sberbank—that the bank would attempt to regain its funds by all legal means—was interpreted as pressure on the Croatian government with the goal of seizing land that belonged to the holding company.

Agrokor’s fate has forced many other Croatian businesses to seriously reassess their ability to compete with Western European companies, hence the unprecedentedly large business forum in Moscow and talk of stimulating Croatian exports to Russia.

EU entry failed to boost the Croatian economy. The country’s inflation-adjusted GDP in 2016 was 8 percent lower than it was in 2008—the worst result in Central and Eastern Europe, not counting war-torn Ukraine. It’s not surprising, therefore, that having received none of the expected advantages from the EU, Croatian business has started seeking other avenues.

Traditionally, Croatia is of interest to Russia first and foremost in the field of energy. A month ago, Gazprom negotiated a new ten-year contract with Croatia to supply 1 billion cubic meters of gas per year. Russia is likewise interested in possible new contracts for modernizing electric power plants, something it already did in the 2000s. And then, of course, there’s the Kremlin’s main and seemingly eternal energy project in the Balkans: at times the South Stream gas pipeline, at others Turkish Stream. The Russian government would be pleased to see Croatia involved in either.

The Croatian government is trying hard to turn the country into a regional energy hub. Soon, construction will begin on an LNG terminal on Krk Island, a project supported by Trump himself during his July meeting with Grabar-Kitarović. Most likely, the Croatians will want to attract the attention of other large energy exporters as well, which is why some of the Russian-backed projects may be realized.

Still, we shouldn’t expect breakthroughs in bilateral collaboration, or to see Croatia turn into a close Russian ally. Sanctions, falling oil prices, and long-term stagnation in both countries can’t be overcome by presidential meetings, and real economic ties between the two countries are modest. Back in the early 2000s, Russia was among Croatia’s top three foreign trade partners, but now it accounts for just 1.5 percent.

Right now, Russia has Agrokor’s debt to Sberbank and VTB on its side. But in the current atmosphere of total war against the Kremlin’s scheming, nobody is going to let Moscow convert that into a serious strengthening of its position in Croatia. This is a commercial issue and, in some form, the money will eventually be returned. European courts even took Moscow’s side regarding loans issued to Ukraine under its former president, Viktor Yanukovych.

In addition, both Croatia’s political class and its public are wary of Russia. For them, Russians are first and foremost Serbia’s allies, and during the Ukraine crisis, Croatians aligned themselves with Kiev. Prime Minister Andrej Plenković suggested using the Croatian experience of the 1990s to regulate the conflict in Ukraine’s Donbas region, which spurred indignation from the Russian Ministry of Foreign Affairs. President Grabar-Kitarović herself has made harsh statements about Moscow’s foreign policy on a number of occasions.

The recent visit is, however, a step on the road to normalizing relations. It is an attempt to restore collaboration between the two countries to its traditional level, following the desolation of recent years. Under current conditions, that is no small thing.

Maksim Samorukov
Fellow, Carnegie Russia Eurasia Center
Maksim Samorukov
Economy

Carnegie does not take institutional positions on public policy issues; the views represented herein are those of the author(s) and do not necessarily reflect the views of Carnegie, its staff, or its trustees.

More Work from Carnegie Endowment for International Peace

  • Commentary
    Strategic Europe
    How Europe Can Survive the AI Labor Transition

    Integrating AI into the workplace will increase job insecurity, fundamentally reshaping labor markets. To anticipate and manage this transition, the EU must build public trust, provide training infrastructures, and establish social protections.

      Amanda Coakley

  • Commentary
    Carnegie Politika
    Does Russia Have Enough Soldiers to Keep Waging War Against Ukraine?

    The Russian army is not currently struggling to recruit new contract soldiers, though the number of people willing to go to war for money is dwindling.

      Dmitry Kuznets

  • Commentary
    Strategic Europe
    Taking the Pulse: Can the EU Attract Foreign Investment and Reduce Dependencies?

    EU member states clash over how to boost the union’s competitiveness: Some want to favor European industries in public procurement, while others worry this could deter foreign investment. So, can the EU simultaneously attract global capital and reduce dependencies?

      • Rym Momtaz

      Rym Momtaz, ed.

  • Wide shot of Trump and Modi, with Trump pointing
    Commentary
    Emissary
    The Trump-Modi Trade Deal Won’t Magically Restore U.S.-India Trust

    Washington and New Delhi should be proud of their putative deal. But international politics isn’t the domain of unicorns and leprechauns, and collateral damage can’t simply be wished away.

      Evan A. Feigenbaum

  • people sitting on a stage
    Commentary
    From Loss and Damage to Climate Mobility Action

    Senior climate, finance, and mobility experts discuss how the Fund for Responding to Loss and Damage could unlock financing for climate mobility.

      • Alejandro Rodriguez

      Alejandro Martin Rodriguez

Get more news and analysis from
Carnegie Endowment for International Peace
Carnegie global logo, stacked
1779 Massachusetts Avenue NWWashington, DC, 20036-2103Phone: 202 483 7600Fax: 202 483 1840
  • Research
  • Emissary
  • About
  • Experts
  • Donate
  • Programs
  • Events
  • Blogs
  • Podcasts
  • Contact
  • Annual Reports
  • Careers
  • Privacy
  • For Media
  • Government Resources
Get more news and analysis from
Carnegie Endowment for International Peace
© 2026 Carnegie Endowment for International Peace. All rights reserved.