Context
A voucher-based adult education system was designed and introduced as a response to structural challenges related to the mismatch between workforce skills and labour market needs, as well as the limited adaptability of the education system to the rapid changes brought by the green and digital transitions. Existing models for financing adult education, burdened by lingering procurement procedures and limited educational offer, were inflexible and insufficiently focused on monitoring outcomes and real effects of education. In this context, the need for a structural reform was identified that would link education policy, employment policy, and digital transformation through a unified, transparent, and user-centred model of financing adult education based on relevant data and focused on clear outcomes, which would significantly increase participation in lifelong learning and operationalise the acquisition of micro qualifications at all levels of education.
Objectives
The project aims to establish a transparent, flexible, digitalised, user-friendly, and accessible system of financing adult education, which for the first time in Croatia includes both unemployed and employed persons. It also provides support to users through standardised self-assessment tools and career counselling services. The voucher system is a unique and efficient model for upskilling and reskilling that aims to improve the skills and employability of vulnerable groups, fill the skill gaps in the workforce, encourage lifelong learning, and boost economic development and competitiveness.
A special emphasis is placed on the quality of offered training programmes, inclusion of the employers in development and curriculum design including for non-formal programmes, and the establishment of mechanisms for monitoring, evaluating, and adapting public investments in workforce skills development. In the long term, the project aims to institutionalise the voucher system as a permanent reform instrument of skills acquisition and adult education policy through the development of individual learning accounts.
The project is led by the Ministry of Labour, Pension System, Family and Social Policy (Ministarstvo rada, mirovinskoga sustava, obitelji i socijalne politike – MROSP). All relevant stakeholders, including ministries and agencies responsible for education, educational institutions, and social partners, were involved in design and implementation of the project. The Croatian Employment Service (Hrvatski zavod za zapošljavanje – HZZ) is the implementing body responsible for awarding vouchers.
Implementation
The project was implemented through the establishment of a legislative framework and the development of a digital platform for voucher management that integrates data on beneficiaries, education providers, available programmes, and labour market needs. The system enables acquisition of micro, partial, and full qualifications at the secondary and tertiary education levels, as well as to develop skills for the twin transition and labour market adaptation. Programmes are aligned with the Croatian Qualifications Framework, ensuring transparency and recognition of acquired competences. Based on the Labour Market Act, a system for evaluating acquired competencies and programme effectiveness was also established.
The implementation of the project has shown excellent results and positive effects on participation in adult education. Between April 2022 and December 2025, more than 54 000 unemployed and employed persons enrolled in education through the voucher system. Over 84% of unemployed participants successfully gained employment within one year of completing education. Nearly 300 education providers offer more than 2500 programmes for acquiring skills relevant to the labour market needs via the digital voucher platform. The voucher scheme alone has generated EUR 45 million of public investment in skills development, which is the largest boost to adult education in Croatia to date.