Since 2022, Croatia has awarded EUR 28 151 836 in vouchers, with an average voucher value of EUR 987. A total of 29 317 voucher requests were approved, 18 693 learners have completed the training programmes, and 6 963 are currently enrolled (from December 2024). At present, 228 education providers offer 1 786 programmes eligible for financing based on the Catalogue of Skills established by the ministry responsible for labour. Most learners (65%) are interested in developing digital skills, while green skills account for 14% and other labour-market-relevant skills make up 21%. Surveys indicate high learner satisfaction, averaging 92%, particularly regarding learning environments, instructors, and career opportunities following programme completion
Participation of disadvantaged groups remains a challenge
Despite support mechanisms (career guidance, financial aid for the unemployed – including allowances and transportation costs), participation by disadvantaged groups in voucher-based lifelong learning remains low. While most voucher users (75%) are employed, only 7% of approved requests came from NEETs, 2% from inactive individuals, and 2% from the long-term unemployed – reflecting global trends in adult learning participation, as noted in the Education and Training Monitor 2024
Despite the introduction of the voucher programme, participation in lifelong learning among the unemployed remained largely unchanged compared to the results achieved under long-standing active labour market policies. However, the voucher programme significantly boosted lifelong learning interest among employed individuals. Vouchers offer greater flexibility (programme choice, providers, schedules) and a wider range of options. Employer support for voucher use is also increasing, recognising the need for green and digital upskilling
Quality mechanisms ensure programme relevance and high completion rates
Vouchers are awarded exclusively for adult education programmes (primarily microcredentials and partial qualifications) aligned with Croatian qualifications framework standards and skills mapping, ensuring relevance and quality of training programmes. Voucher users sign agreements with the public employment service (PES), outlining their responsibilities. Programme completion is verified through final assessments and course attendance, monitored by the PES. Learners who fail to complete their programmes are required to reimburse the voucher cost, along with any additional financial support received. The PES conducts satisfaction surveys among all learners upon programme completion. Based on evaluation results, the PES may terminate cooperation with certain education providers. Cooperation may also be terminated if programmes no longer meet the eligibility criteria, in line with the Catalogue of Skills or if no voucher users enrol within a year. Finally, random class observations and follow-ups on user complaints further support quality assurance.
Background and future outlook
The voucher scheme was launched in April 2022, supported by the National Recovery and Resilience Plan, with EUR 60 million allocated for green and digital skills development, targeting 40 000 users by 2026, including 12 000 from disadvantaged groups. Since June 2023, up to EUR 100 million from ESF+ funding has been made available to support an additional 75 000 target users by 2030. This expanded funding now covers a broader range of in-demand skills, beyond green and digital competences. As of 2024, vouchers can also co-finance Croatian language courses for foreign workers, facilitating their integration into the labour market. These courses address the needs of sectors increasingly reliant on migrant workers, such as construction, tourism and hospitality, manufacturing, and the food industry.
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