Thematic country review on upskilling pathways: new opportunities for adults in Croatia

Context

To assist countries in implementing the recommendation, Cedefop conducts thematic country reviews (TCRs) on upskilling pathways, which analyse national systems and promote more coordinated and coherent approaches to adult upskilling in cooperation with national stakeholders. Italy and France completed the first reviews in 2021, followed by Croatia, whose review covers the period 2023–2026. Croatia’s response is largely framed by the Adult Education Act (2022), which aims to strengthen lifelong learning opportunities and support disadvantaged adult learners. 

Facts and findings 

• Croatia’s adult learning governance is institutionally developed, with clear responsibilities across the Ministry of Science and Education, the Ministry of Labour, the Croatian Employment Service and AVETAE, yet governance remains highly centralised and vertical coordination between national, regional and local levels is weak.
• The voucher scheme, funded through the National Recovery and Resilience Plan and the ESF+ programme, has broadened access to accredited training in digital, green and transversal skills for both employed and unemployed adults. Yet, the sustainability of the voucher scheme depends heavily on EU funding, permanent national co-financing mechanisms remain limited and regional uptake is uneven.
• Adults with low skill levels, third-country nationals, and rural populations remain difficult to reach. Many are unaware of available opportunities or perceive learning as inaccessible or irrelevant to their circumstances.

Key messages 

The Croatian case illustrates both the progress and the remaining gaps in implementing upskilling pathways.

• Recent reforms signal a clear policy commitment to strengthening lifelong learning and improving access to training opportunities for adults with lower qualifications or low skill levels.
• Financial incentives and structured programmes have begun to stimulate demand for training and improve the visibility of adult learning opportunities.
• However, the system still faces barriers that limit its effectiveness. Policy implementation remains largely centralised, which can reduce flexibility and the ability to respond to regional labour-market needs. 
• At the same time, some groups most in need of upskilling - such as inactive adults or those with low educational attainment - remain difficult to reach. 
• Without stronger coordination, sustainable funding and targeted outreach, current initiatives risk benefiting primarily those already closer to the labour market rather than the most disadvantaged learners.

Policy pointers 

Strengthening the effectiveness of upskilling pathways in Croatia requires actions across governance, funding and outreach. 

• First, coordination mechanisms between national authorities, regional actors and local stakeholders should be reinforced to better align training provision with local labour-market needs. Expanding the role of regional competence centres and local partnerships could support this objective.
• Second, the long-term sustainability of funding instruments such as vouchers should be addressed by gradually integrating them into stable national financing frameworks. Simplifying administrative procedures and improving information systems could further increase participation.
• Finally, targeted outreach strategies are needed to engage adults with the lowest skill levels. Partnerships with community organisations, social services and employment offices can help identify potential learners, while personalised guidance and validation of prior learning may lower barriers to participation and make training pathways more accessible and attractive.