- 2023Approved/Agreed
- 2024Implementation
Background
The National Education System Development Plan for the period up to 2027 represents the main strategic framework for education. It is aligned with the National Development Strategy for Croatia until 2030 and serves as the basis for the National Implementation Plan for achieving the goals of the Osnabrück Declaration and the 2020 Council Recommendation on VET, as well as the Programme Efficient Human Resources 2021-2027, which defines the financing priorities for ESF+.
The National Education System Development Plan for the period up to 2027 identified the following specific challenges for VET, which contribute to labour market imbalances and skills mismatches:
- low enrolment and limited attractiveness of three-year IVET programs (NQF 4.1/EQF 4, especially JMO programmes/apprenticeships), coupled with surplus enrolment in certain four-year IVET tracks (NQF 4.2/EQF 4);
- insufficient opportunities for practical training in companies, low involvement of companies, and inadequate support for in-company trainers;
- underdeveloped mechanisms for skills anticipation and graduate tracking;
- VET provider network, programme offer at the regional level, flexibility in VET provision, and enrolment planning that do not respond to labour market needs;
- limited relevance of VET programmes for the labour market demands;
- limited participation of VET teachers and trainers in CPD, inadequate support and evaluation mechanisms for teachers
- incongruity of quality assurance mechanisms.
In the area of adult education, the National Education System Development Plan for the period up to 2027 identified the following challenges affecting lifelong learning and contributing to workforce skills obsolescence:
- low participation in lifelong learning (particularly among low-skilled individuals, the elderly, rural populations, and the long-term unemployed);
- limited employer involvement in anticipating skill needs, developing programmes, and assessing outcomes; uneven quality and availability of adult learning programmes;
- introducing new mechanisms for quality assurance;
- developing mechanisms for the validation of prior learning;
- insufficient awareness of available lifelong learning opportunities;
- low participation of adult education teachers in CPD, with limited availability of training opportunities and materials.
The National Education System Development Plan for the period up to 2027 builds on several system-level initiatives undertaken in line with the previous strategic framework, the VET System Development Programme 2016-2020. These include:
- VET reform aligning curricula with labour market needs, based on the development of occupational and qualification standards;
- an outcome-based approach and modular structure of curricula;
- the establishment of regional centres of competence;
- a reformed model of CPD for VET teachers;
- the adoption of a training programme for in-company trainers to develop basic teaching skills;
- incentives for apprentices and companies providing apprenticeships;
- promotion of VET attractiveness through WorldSkills Croatia competitions for IVET learners.
In adult education, Croatia also made significant progress by
- aligning the Law on Adult Education with the Croatian Qualifications Framework in 2021 (including a methodology for developing adult education programmes, published in 2022)
- introducing micro-credentials as of 2022
- establishing a comprehensive quality assurance system (in the period 2019-2023)
- designing a system for validating prior learning, finalised in 2024
Objectives
The National Education System Development Plan defines the strategic priorities and measures for education at all levels for the period up to 2027, including specific measures for IVET and adult education, based on the analysis of development needs and challenges for each priority.
Description
In response to the challenges affecting VET, the National Education System Development Plan for the period up to 2027 proposes a number of measures, building on key reform initiatives from the previous strategic period. The specific measures related to VET (Area 3 of the Plan) include:
3.1. Continuing the VET curricula reform and introducing new modular, outcome-oriented curricula to VET providers.
3.2. Supporting VET providers in implementing new curricula, programme profiling, and aligning educational offer with the needs of learners and the economy, specifically by strengthening the autonomy and flexibility of VET providers, improving access for learners with disabilities and other vulnerable groups, and investing in infrastructure.
3.3. Continuing support for regional centres of competence in VET by strengthening teacher competencies, enhancing networking with partner institutions and companies, promoting excellence in education provision, and international cooperation.
3.4. Establishing a system of financial incentives for learners to encourage enrolment in programmes for in-demand qualifications, especially in tourism.
3.5. Strengthening work-based learning (WBL), particularly in companies, by expanding the network of companies offering WBL in VET, providing incentives for learners and companies, supporting in-company mentors with teaching methodology and resources, and enhancing the quality of WBL in companies.
3.6....
In response to the challenges affecting VET, the National Education System Development Plan for the period up to 2027 proposes a number of measures, building on key reform initiatives from the previous strategic period. The specific measures related to VET (Area 3 of the Plan) include:
3.1. Continuing the VET curricula reform and introducing new modular, outcome-oriented curricula to VET providers.
3.2. Supporting VET providers in implementing new curricula, programme profiling, and aligning educational offer with the needs of learners and the economy, specifically by strengthening the autonomy and flexibility of VET providers, improving access for learners with disabilities and other vulnerable groups, and investing in infrastructure.
3.3. Continuing support for regional centres of competence in VET by strengthening teacher competencies, enhancing networking with partner institutions and companies, promoting excellence in education provision, and international cooperation.
3.4. Establishing a system of financial incentives for learners to encourage enrolment in programmes for in-demand qualifications, especially in tourism.
3.5. Strengthening work-based learning (WBL), particularly in companies, by expanding the network of companies offering WBL in VET, providing incentives for learners and companies, supporting in-company mentors with teaching methodology and resources, and enhancing the quality of WBL in companies.
3.6. Providing training for VET teachers and trainers in line with the reformed CPD model for VET teachers and designing a model for introducing hybrid teachers in VET.
3.7. Promoting the attractiveness of VET, particularly through the WorldSkills Croatia state competitions.
3.8. Supporting the internationalisation of VET through Erasmus+ mobility for learners and teachers, transnational cooperation of VET schools, and the participation of Croatian competitors in WorldSkills and EuroSkills competitions.
3.9. Establishing a comprehensive quality assurance system in VET, including quality indicators, enhancing self-assessment of VET providers, linking self-assessment to external evaluation, and incorporating graduate tracking and skills anticipation mechanisms.
Measures related to adult education (Area 4 of the Plan) include:
4.1. Developing adult learning programmes and validation programmes to introduce the validation of prior learning.
4.2. Supporting the implementation of new quality mechanisms in adult education.
4.3. Supporting the CPD of adult education (andrologic) teachers.
4.4. Promoting the use of skills assessment, self-assessment tools, and guidance mechanisms.
4.5. Promoting lifelong learning, including through Master craftsmen schools.
4.6. Providing incentives for learners in basic skills programmes (digital, numerical, and literacy skills).
4.7. Supporting the internationalisation of adult education, specifically through Erasmus+ mobility for learners and teachers, as well as transnational cooperation of VET schools.
The National Education System Development Plan for the period up to 2027 was adopted in 2023.
Progress in implementing the measures of the National Education System Development Plan for the period up to 2027 is described in the following related policy developments:
- VET curricula reform (measure 3.1., measure 3.2.).
- Regional centres of competences (measure 3.3.).
- Incentives for SMEs and learners to participate in apprenticeship (measure 3.5).
- Modernising the VET teacher CPD system (measure 3.6.).
- Reformed model of skills competitions (measure 3.7.).
- Reformed model of skills competitions (measure 3.8.).
- Improving VET school self-assessment (measure 3.9.).
- VET graduate tracking (measure 3.9.).
- Validation arrangements (measure 4.1.).
- The Law on Adult Education (measure 4.1.).
- Development of a quality assurance system in adult education (measure 4.2.).
- Promotion of lifelong learning (measure 4.3.).
Bodies responsible
- Ministry of Science, Education and Youth (MZOM)
Target groups
Learners
- Learners in upper secondary, including apprentices
- Learners with disabilities
- Adult learners
- Learners from other groups at risk of exclusion (minorities, people with fewer opportunities due to geographical location or social-economic disadvantaged position)
Education professionals
- Teachers
- Trainers
- 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 the integration of VET into economic, industrial, innovation, social and employment strategies, including those linked to recovery, green and digital transitions, and where VET is seen as a driver for innovation and growth. It includes national, regional, sectoral strategic documents or initiatives that make VET an integral part of broader policies, or applying a mix of policies to address an issue VET is part of, e.g. in addressing youth unemployment measures through VET, social and active labour market policies that are implemented in combination. National skill strategies aiming at quality and inclusive lifelong learning also fall into this sub-category.
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.
High-quality and timely skills intelligence is a powerful policy tool, helping improve economic competitiveness and fostering social progress and equality through the provision of targeted skills training to all citizens (Cedefop, 2020). Skills intelligence is the outcome of an expert-driven process of identifying, analysing, synthesising and presenting quantitative and/or qualitative skills and labour market information. Skills intelligence draws on data from multiple sources, such as graduate tracking systems, skills anticipation mechanisms, including at sectoral and regional levels. Actions related to establishing and developing such systems fall under this thematic sub-category.
Modernising VET infrastructure
This thematic category looks at how VET schools and companies providing VET are supported to update and upgrade their physical infrastructure for teaching and learning, including digital and green technologies, so that learners in all VET programmes and specialities have access to state-of-the-art equipment and are able to acquire relevant and up-to-date vocational and technical skills and competences. Modernising infrastructure in remote and rural areas increases the inclusiveness of VET and LLL.
This thematic sub-category refers to measures for modernising physical infrastructure, equipment and technology needed to acquire vocational skills in VET schools and institutions that provide CVET or adult learning, including VET school workshops and labs.
Modernising VET offer and delivery
This thematic category looks at what and how individuals learn, how learning content and learning outcomes in initial and continuing VET are defined, adapted and updated. First and foremost, it examines how VET standards, curricula, programmes and training courses are updated and modernised or new ones created. Updated and renewed VET content ensures that learners acquire a balanced mix of competences that address modern demands, and are more closely aligned with the realities of the labour market, including key competences, digital competences and skills for green transition and sustainability, both sector-specific and across sectors. Using learning outcomes as a basis is important to facilitate this modernisation, including modularisation of VET programmes. Updating and developing teaching and learning materials to support the above is also part of the category.
The thematic category continues to focus on strengthening high-quality and inclusive apprenticeships and work-based learning in real-life work environments and in line with the European framework for quality and effective apprenticeships. It looks at expanding apprenticeship to continuing vocational training and at developing VET programmes at EQF levels 5-8 for better permeability and lifelong learning and to support the need for higher vocational skills.
This thematic category also focuses on VET delivery through a mix of open, digital and participative learning environments, including workplaces conducive to learning, which are flexible, more adaptable to the ways individuals learn, and provide more access and outreach to various groups of learners, diversifying modes of learning and exploiting the potential of digital learning solutions and blended learning to complement face-to-face learning.
Centres of vocational excellence that connect VET to innovation and skill ecosystems and facilitate stronger cooperation with business and research also fall into this category.
VET standards and curricula define the content and outcomes of learning, most often at national or sectoral levels. VET programmes are based on standards and curricula and refer to specific vocations/occupations. They all need to be regularly reviewed, updated and aligned with the needs of the labour market and society. They need to include a balanced mix of vocational and technical skills corresponding to economic cycles, evolving jobs and working methods, and key competences, providing for resilience, lifelong learning, employability, social inclusion, active citizenship, sustainable awareness and personal development (Council of the European Union, 2020). The thematic sub-category also refers to establishing new VET programmes, reducing their number or discontinuing some. It also includes design of CVET programmes and training courses to adapt to labour market, sectoral or individual up- and re-skilling needs.
The learning-outcomes-based approaches focus on what a learner is expected to know, to be able to do and understand at the end of a learning process (Cedefop, 2016). Learning outcomes can be defined at the system level as in national qualification frameworks (NQFs), most of which are currently based on learning outcomes. Learning outcomes can be defined in qualification standards, curricula, learning programmes and assessment, although the last one is still uncommon. This thematic sub-category refers to the use of learning outcomes in these contexts and to development and use of modules or units of learning outcomes in VET curricula and programmes.
This thematic sub-category refers to acquisition of key competences and basic skills for all, from an early age and throughout their life, including those acquired as part of qualifications and curricula. Key competences include knowledge, skills and attitudes needed by all for personal fulfilment and development, employability and lifelong learning, social inclusion, active citizenship and sustainable awareness. Key competences include literacy; multilingual; science, technology, engineering and mathematical (STEM); digital; personal, social and learning to learn; active citizenship, entrepreneurship, cultural awareness and expression (Council of the European Union, 2018).
This thematic sub-category covers all developments related to work-based learning (WBL) elements in VET programmes and apprenticeships which continue to be important in the policy agenda. It includes measures to stabilise the offer of apprenticeships, the implementation of the European framework for quality and effective apprenticeships, and using the EU on-demand support services and policy learning initiatives among the Member States. It also covers further expansion of apprenticeships and WBL to continuing VET (CVET), for transition to work and inclusion of vulnerable groups, and for improving citizens’ qualification levels.
This thematic sub-category refers to the establishment and development of Centres of vocational excellence (CoVEs). These centres support the development of VET, including at higher qualification levels (EQF 5-8), cooperation of VET, higher education and research. They build on strong local business investment and support recovery, green and digital transitions, European and regional innovation and smart specialisation strategies. They provide innovative services, such as clusters and business incubators for start-ups, technology innovation for SMEs and innovative reskilling solutions for workers at risk of redundancy. The thematic sub-category is not limited to the centres supported by Erasmus+ funding.
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 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.
Teachers, trainers and school leaders competences
Competent and motivated VET teachers in schools and trainers in companies are crucial to VET becoming innovative and relevant, agile, resilient, flexible, inclusive and lifelong.
This thematic category comprises policies and practices of initial training and continuing professional development approaches in a systemic and systematic manner. It also looks at measures aiming to update (entry) requirements and make teaching and training careers attractive and bring more young and talented individuals and business professionals into teaching and training. Supporting VET educators by equipping them with adequate competences, skills and tools for the green transition and digital teaching and learning are addressed in separate thematic sub-categories.
The measures in this category target teachers and school leaders, company trainers and mentors, adult educators and guidance practitioners.
This thematic sub-category refers to all kinds of initial and continuing professional development (CPD) for VET educators who work in vocational schools and in companies providing VET. VET educators include teachers and school leaders, trainers and company managers involved in VET, as well as adult educators and guidance practitioners – those who work in school- and work-based settings. The thematic sub-category includes national strategies, training programmes or individual courses to address the learning needs of VET educators and to develop their vocational (technical) skills, and pedagogical (teaching) skills and competences. Such programmes concern state-of-the-art vocational pedagogy, innovative teaching methods, and competences needed to address evolving teaching environments, e.g. teaching in multicultural settings, working with learners at risk of early leaving, etc.
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 initiatives that promote VET and lifelong learning implemented at any level and by any stakeholder. It also covers measures to ensure and broaden access to information about VET to various target groups, including targeted information and promotional campaigns (e.g. for parents, adult learners, vulnerable groups). Among others, it includes national skill competitions and fairs organised to attract learners to VET.
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).
This thematic sub-category refers to making VET pathways and programmes inclusive and accessible for all. It concerns measures and targeted actions to increase access and participation in VET and lifelong learning for learners from all vulnerable groups, and to support their school/training-to-work transitions. It includes measures to prevent early leaving from education and training. The thematic sub-category covers measures promoting gender balance in traditionally ‘male’ and ‘female’ professions and addressing gender-related and other stereotypes. The vulnerable groups are, but not limited to: persons with disabilities; the low-qualified/-skilled; minorities; persons of migrant background, including refugees; people with fewer opportunities due to their geographical location and/or their socioeconomically disadvantaged circumstances.
European and international dimensions of VET
This thematic category covers both European and international cooperation in initial and continuing VET, aimed at promoting EU VET systems as a European education and training area and making it a reference for learners in neighbouring countries and across the globe.
Expanding opportunities and increasing participation of VET learners, young and adult, and staff in international mobility for learning and work, including apprenticeship and virtual and blended mobility, account for most initiatives in this thematic category.
Apart from established and financially supported EU cooperation, VET opens up to cooperation and promotion of European values and national practices beyond the EU, which is becoming a trend. This thematic category also encompasses internationalisation strategies, transnational cooperation projects and initiatives – including those where joint VET programmes, examinations and qualifications are developed – and participation in international skills competitions that promote the image of VET. Using international qualifications – awarded by legally established international bodies or by a national body acting on behalf of an international body – in the national VET systems and recognising them towards national qualifications is also in focus.
This thematic sub-category refers to providing opportunities for, implementing and increasing rates of, learning mobility of VET and adult learners and staff, including virtual mobility, apprenticeship placements, long-duration mobility and mobility to third countries, in line with national regulations, collective agreements and health and safety provisions. It also includes the provision of information about mobility, support structures and tools, strengthening the quality of mobility experiences and recognition of learning outcomes acquired abroad, including with the use of relevant EU tools, e.g. memoranda of understanding or learning agreements (ECVET elements).
This thematic sub-category refers to cooperation with other EU countries and beyond in preparing national teams for international competitions such as WorldSkills and EuroSkills and participation in those.
European priorities in VET
VET Recommendation
- VET agile in adapting to labour market challenges
- VET as a driver for innovation and growth preparing for digital and green transitions and occupations in high demand
- VET as an attractive choice based on modern and digitalised provision of training and skills
- VET underpinned by a culture of quality assurance
Osnabrück Declaration
- Resilience and excellence through quality, inclusive and flexible VET
- Establishing a new lifelong learning culture - relevance of continuing VET and digitalisation
- European Education and Training Area and international VET
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2025). National Education System Development Plan for the period up to 2027: 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/47757