- 2021Approved/Agreed
- 2022Implementation
- 2023Implementation
- 2024Implementation
Background
In December 2021, the Law on Adult Education replaced the 2007 Law on Adult Education, updating the regulatory framework for adult education in line with the Strategy of education, science and technology as well as approximation with the Law on Vocational Education and with the Law on the Croatian Qualifications Framework.
Objectives
The amendment of the Law on Adult Education aims at the alignment of the regulations with the development of the national qualifications framework and to improve the quality assurance system, to ensure quality and effective education focused on the needs of the individual and the labour market.
Description
The 2021 Law on Adult Education provided guidelines for the development of a comprehensive quality assurance system and allowed for the validation of non-formal and informal learning. With the 2021 law, the adult education system has been completely aligned to the national qualification framework and based on occupation and qualification standards. The 2021 law also introduced micro credentials as units of learning outcomes designed to help individuals acquire specific sets of skills aligned to the Croatian Qualifications Framework standards.
The legislative proposal was prepared by a working group of representatives of ministries, ASOO, associations of adult education institutions, employers, and the Chambers of Commerce. Public consultations on the Law were opened between 13 May and 12 June 2021. The Law on Adult Education was adopted by the Croatian Parliament on 15 December 2021.
In 2022, based on the Law on Adult Education, ASOO also published the Methodology for developing adult education programmes for acquiring micro-qualifications, partial qualifications, and full qualifications funded through vouchers and other funding sources. Aligning all qualifications to the Croatian Qualifications Framework in line with the Adult Education Act, for the first time, the methodology defined micro- and partial qualifications in detail, awarded for the completion of professional development programmes (EQF 4), short training programmes (EQF 2, 3, and 4), and VET specialist development programmes (EQF 5). The workload for partial qualifications is defined at least 10 CSVET and up to 9 CSVET credits for micro-qualifications; this is adjusted to the complexity of learning outcomes. Expanding VET programmes beyond EQF level 4 for the first time, the National curriculum for VET introduced EQF level 5 qualifications in 2018. Following the adoption of the 2021 Law on Adult Education, adult education (CVET) providers developed VET specialist development programmes (EQF 5) at the post-secondary level in the form of micro-credentials, partial and full qualifications, awarding CVET specialist development and training certificates. Typically, programmes leading to full qualifications last 1-2 years. This specialisation pathway is labour-market-oriented, with a recommended WBL share of at least 50% in schools or companies. Entry requirements involve the completion of VET programmes at the upper-secondary level (EQF 4).
To encourage participation in lifelong learning, micro-credentials ('micro-qualifications' according to national terminology) and vouchers for upskilling and reskilling of the unemployed and employed were introduced in 2022, in line with the Law on Adult Education.
Based on the Law on Adult Education, the ministry responsible for education adopted the Regulation on the procedure of external evaluation of adult education institutions and units of learning outcomes, including the procedure for appointing and operation of the Commission for appeals on the external evaluation reports (Official Gazette, No. 19/2023), which provides the legal framework for conducting external evaluation of adult education institutions and units of learning outcomes. In line with the regulation, the Agency for VET and Adult Education adopted the protocols for external evaluation of adult education institutions and units of learning outcomes, the Ethical code for external evaluation of adult education institutions and Guidelines for external evaluation of adult education providers, further defining the procedures of external evaluation. According to the regulation, ASOO conducts external evaluations every 5-7 years, based on an annual plan or at the request of an institution. External evaluation is conducted by an independent Commission for external evaluation, appointed by ASOO and composed of adult education professionals. The Commission for appeals on the external evaluation reports is appointed by the ministry in charge of education and intervenes in case of objections of adult education providers to the reports issued by ASOO. In preparation for the external evaluation, adult education providers submit self-assessment reports, and the Commission also considers prior external evaluations, inspections or professional supervision procedures. During site visits, the Commission rates quality areas and standards, as well as the overall performance of the providers, in line with the assessment areas and criteria described in the Guidelines for external evaluation of adult education providers (read more in the related policy development: Development of a quality assurance system in adult education). The Commission report also includes suggestions for improvement. ASOO publishes the report on external evaluation and the decision on quality level of the provider on its website. The recommendations for quality improvements are advisory, unless the quality level is unsatisfactory, in which case they become mandatory for providers. The extreme consequence of unsatisfactory level of quality may also entail permanent closure of the adult education provider.
Furthermore, the Regulation on the procedure of external evaluation of adult education institutions and units of learning outcomes defines the procedure for assessing learning outcomes during final examinations or defence of final practical assignments for the completion of adult education programmes, including for the validation of prior learning. Adult education providers are required to report their arrangements for the final assessment of candidates to ASOO. For providers selected to undergo external evaluation of learning outcomes, ASOO sets up a Commission that conducts final examination or defence, composed of independent assessors and a representative of the provider undergoing external evaluation. In case of irregularities, ASOO may initiate professional supervision procedure or request from the provider to repeat the final assessment of candidates.
In 2023, the Regulation on standards and norms for the delivery of adult education programmes was also adopted (reflecting the 2021 Law on Adult Education). This details general technical, material and professional staff requirements for adult education providers, teaching and learning modalities for adults, restrictions on class size and workload for learners, as well as general arrangements for the final assessment of learning outcomes.
Based on the 2021 Law on Adult Education, the Regulation on the procedures of application for and the process of evaluation of prior learning (Official Gazette, No. 79/2024) was adopted in 2024. See Validation arrangements for full details.
Bodies responsible
- Ministry of Science, Education and Youth (MZOM)
Target groups
Learners
- Adult learners
Education professionals
- Adult educators
Entities providing VET
- VET providers (all kinds)
Thematic categories
Governance of VET and lifelong learning
This thematic category looks at existing legal frameworks providing for strategic, operational – including quality assurance – and financing arrangements for VET and lifelong learning (LLL). It examines how VET and LLL-related policies are placed in broad national socioeconomic contexts and coordinate with other strategies and policies, such as economic, social and employment, growth and innovation, recovery and resilience.
This thematic category covers partnerships and collaboration networks of VET stakeholders – especially the social partners – to shape and implement VET in a country, including looking at how their roles and responsibilities for VET at national, regional and local levels are shared and distributed, ensuring an appropriate degree of autonomy for VET providers to adapt their offer.
The thematic category also includes efforts to create national, regional and sectoral skills intelligence systems (skills anticipation and graduate tracking) and using skills intelligence for making decisions about VET and LLL on quality, inclusiveness and flexibility.
This thematic sub-category refers to further development of national quality assurance (QA) systems for IVET and CVET, for all learning environments (school-based provision and work-based learning, including apprenticeships) and all learning types (digital, face-to-face or blended), delivered by both public and private providers. These systems are underpinned by the EQAVET quality criteria and by indicative descriptors applied both at system and provider levels, as defined in Annex II of the VET Recommendation. The sub-category concerns creating and improving external and self-evaluation of VET providers, and establishing criteria of QA, accreditation of providers and programmes. It also covers the activities of Quality assurance national reference points for VET on implementing and further developing the EQAVET framework, including the implementation of peer reviews at VET system level.
Transparency and portability of VET skills and qualifications
European principles and tools, such as EQF, ESCO, ECTS, Europass and ECVET, provide a strong basis for transparency and portability of national and sectoral qualifications across Europe, including the issuing of digital diplomas and certificates.
This thematic category looks at how individuals are supported in transferring, accumulating, and validating skills and competences acquired in formal, non-formal and informal settings – including learning on the job – and in having their learning recognised towards a qualification at any point of their lives. This is only possible if qualifications are transparent and comparable and are part of comprehensive national qualifications frameworks. Availability of qualifications smaller than full and acquirable in shorter periods of time is necessary; some countries have recently worked on developing partial qualifications, microcredentials, etc.
This thematic sub-category refers to the development and implementation of qualifications that are smaller than full qualifications (alternative credentials) or are acquired in a shorter learning experience. It includes microcredentials, partial qualifications, units of learning outcomes (ECVET principle), digital badges, etc. These are owned by learners and can be combined or not to get a full qualification.
This thematic sub-category refers to validation mechanisms allowing individuals to accumulate, transfer, and recognise learning outcomes acquired non-formally and informally, including on-the-job learning, or in another formal system. In case they are not automatically recognised, a learner can have these learning outcomes validated and recognised through a particular process with a view to obtaining a partial or full qualification. This thematic sub-category covers such provisions and mechanisms.
Supporting lifelong learning culture and increasing participation
Lifelong learning refers to all learning (formal, non-formal or informal) taking place at all stages in life and resulting in an improvement or update in knowledge, skills, competences and attitudes or in participation in society from a personal, civic, cultural, social or employment-related perspective (Erasmus+, Glossary of terms, https://erasmus-plus.ec.europa.eu/programme-guide/part-d/glossary-common-terms). A systemic approach to CVET is crucial to ensure adaptability to evolving demands.
This broad thematic category looks at ways of creating opportunities and ensuring access to re-skilling and upskilling pathways, allowing individuals to progress smoothly in their learning throughout their lives with better permeability between general and vocational education and training, and better integration and compatibility between initial and continuing VET and with higher education. Individuals should be supported in acquiring and updating their skills and competences and navigating easily through education and training systems. Strategies and campaigns that promote VET and LLL as an attractive and high-quality pathway, providing quality lifelong guidance and tailored support to design learning and career paths, and various incentives (financial and non-financial) to attract and support participation in VET and LLL fall into this thematic category as well.
This thematic category also includes many initiatives on making VET inclusive and ensuring equal education and training opportunities for various groups of learners, regardless of their personal and economic background and place of residence – especially those at risk of disadvantage or exclusion, such as persons with disabilities, the low-skilled and low-qualified, minorities, migrants, refugees and others.
This thematic sub-category refers to all kinds of incentives that encourage learners to take part in VET and lifelong learning; VET providers to improve, broaden and update their offer; companies to provide places for apprenticeship and work-based learning, and to stimulate and support learning of their employees. It also includes measures addressing specific challenges of small and medium-sized enterprises (SMEs) willing to create work-based learning opportunities in different sectors. Incentives can be financial (e.g. grants, allowances, tax incentives, levy/grant mechanisms, vouchers, training credits, individual learning accounts) and non-financial (e.g. information/advice on funding opportunities, technical support, mentoring).
European priorities in VET
VET Recommendation
- Flexibility and progression opportunities at the core of VET
- VET underpinned by a culture of quality assurance
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2025). The Law on Adult Education: Croatia. In Cedefop, & ReferNet. (2025). Timeline of VET policies in Europe (2024 update) [Online tool].
https://www.cedefop.europa.eu/en/tools/timeline-vet-policies-europe/search/42773