The Sixth Annual Conference of Experts in Higher Education
Implementation of the ESGs for QA Systems, 11-12 November 2011, Moscow, Russia

Implementing the Bologna Process in the Republic of Croatia – the role of the Agency for Science and Higher Education

Prof. dr. sc. Jasmina Havranek1, dr. sc. Vesna Dodiković-Jurković1,
 mr. sc. Sandra Bezjak1
1Agency for Science and Higher Education, Croatia

Summary

Croatia has implemented the Bologna Process during the last decade by amending the legislative framework, which enabled re-definition of roles and responsibilities of all stakeholders of the higher education and science system, preparing them for full participation in forming the European Higher Education Area. 

The reform included the establishment of a public quality assurance agency, the Agency for Science and Higher Education, which was immediately faced with a number of challenges arising from the tradition of Croatian higher education and science, as well as the consequences of implementing the reform. 

It was necessary to develop a partner relation with all stakeholders and then start developing a quality culture at the institutional and at the national level, in line with the European Standards and Guidelines for Quality Assurance in the European Higher Education Area.    

This dynamic period saw the introduction of numerous novelties which redefined the Croatian higher education – a centralised State Matura exam, restructuring of study programs in three cycles, further development of the binary system, ECTS, focus on external and internal quality assurance systems, and the qualifications framework. Students have been promoted into equal, responsible stakeholders in internal and external QA procedures, and the role of the business representatives has been enhanced. 

The Agency has tried to build its capacities, primarily human resources, and develop a quality assurance system recognized at the national and international level; finally, in 2011, it has managed to go through an international external evaluation and apply to full ENQA membership and being listed in EQAR.  

In 2009, new external quality assurance procedures have been adopted, in line with best international practices. The first cycles of these procedures have already been implemented and should contribute to further development and recognisability of Croatian higher education institutions and scientific organisations while simultaneously fostering transparency and mobility in the activities of the Croatian academic community. 

Introduction 

The Republic of Croatia has adopted a strategic goal to be a part of the European Higher Education Area (EHEA); to transform into a knowledge-based society and develop a knowledge based economy.

Looking at education development trends in Europe and throughout the world, Croatia has recognized the need to transform its educational system to meet new requirements. 

The aim is to develop a more flexible and effective higher education system that is compatible with other higher education systems within the European Higher Education Area (EHEA). Process of harmonization of the Croatian higher education system with EHEA has been accompanied by changing the roles and responsibilities of all stakeholders, changing our legislation as well as building a quality culture and developing quality assurance processes.

Reform of the higher education system in the Republic of Croatia 

By singing the Bologna Declaration in 2001 the Republic of Croatia committed itself to achieving the above mentioned goals. These goals included the introduction of the new scheme of study programmes based on a binary, three-cycle system, and the ECTS system. Today there are 10 universities, 16 polytechnics and 30 colleges. 

The first step in the reform of Croatian higher education has been the reform of undergraduate, graduate and professional study programs in line with the Bologna cycles in 2005, when first students were enrolled to Bologna programs. In the 2005-2009 period the postgraduate programs were also restructured. The restructuring required all these study programmes to be accredited as new ones. This involved concerted efforts of more than 2000 Croatian and foreign reviewers, and the whole procedure was implemented via a custom-made information system. 
This period also saw a steep rise in the number of the newly established higher education institutions. 30 new higher education institutions were established, mostly private colleges and public polytechnics, and first private universities also appeared.  

In 2006, the Croatian Qualifications Framework was launched; it should be completed in 2012. Two other significant changes were introduced in the Croatian education system in the academic year 2010/2010 – the State Matura for the completion of a four-year secondary education and an information system for applications to higher education institutions. When candidates are ranked for enrolment, the results of the State Matura exam are taken into account (i.e. State Matura exams have replaced the old entrance exams at higher education institutions). In line with the trends in other European countries, the external and internal quality assurance system in Croatian higher education started to be enhanced. 

We expect that the effect of these comprehensive reforms will fulfil the goal of aligning the Croatian higher education with EHEA, increasing mobility, and contributing to the recognisability and reliability of Croatian higher education qualifications. 

Development of a quality assurance system in the Croatian higher education

The development of the external quality assurance system in Croatian higher education and science was started in the 90s by the establishment of the National Council for Higher Education and the National Council for Science. The system was further enhanced in 2005 by the establishment of the Agency for Science and Higher Education as a separate institution tasked with the implementation of the external quality assurance procedures. 

During the first years of its existence, the Agency was faced with a number of challenges since, as a new institution in the system, it had to gain recognisability and reliability in the national and international - primarily European - context, position itself and build a partner relationship with the stakeholders in the national system of science and higher education.  It was necessary to amend the legal framework which would enable the Agency to achieve its purpose and mission. In 2009 the new Act on Quality Assurance in Science and Higher Education was adopted (Official Gazette, 2009).  

The new Act strengthened the independence of the Agency and clearly established it as the sole institution tasked with external quality assurance procedures in Croatian science and higher education. This Act has been a final step that allows for an alignment of the Croatian higher education system with the Standards and Guidelines for the European Higher Education Area (ENQA, 2005) - ESG. Formally, the ESG were adopted in Croatia in 2006 but in until 2009 they were not mentioned in the relevant legislation.

The adherence of the Agency to the ESG was the topic of the international external review of the Agency which served as the basis for achieving full ENQA membership in 2011. 

The National Council for Higher Education and The National Council for Science are the main strategic bodies responsible for strategic planning, systematic monitoring and development of the systems of higher education and science. The principle of primary responsibility of higher education institutions for their quality (Berlin, 2003; Bergen, 2005) has been implemented nationally. In the strategic document Education Sector Development Plan 2005-2010 that was set out by the Ministry of Science, Education and Sports (MSES) it was stated that: “Quality assurance units in higher education system of the Republic of Croatia should be established by 2006”. During the CARDS 2003 project “Furtherance of the Agency of Science and Higher Education in its Quality Assurance Role and  Development of a Supporting Information System“ in 2006/08, ASHE had helped HEIs to establish quality assurance units, as well as to provide a support in preparing the documents of quality assurance system.

ASHE mission is to synchronize the quality assurance system of HEIs and help Croatian HE to integrate into EHEA. The Agency’s aim is to spread examples of a good practice and to promote quality culture. One of its main tasks has been working on building and enhancing the quality culture at individual, institutional and national level. Respecting the autonomy of HEIs was a challenging task - it was necessary to promote an approach which places the primary responsibility for developing quality culture on HEIs, which have to incorporate it in their everyday work, with the Agency promoting it to all stakeholders and spreading it through all levels of HEIs.

The quality assurance system in Croatia has envisaged involvement of students at all levels in the development and implementation of the QA system process. Students are expected to participate in the evaluation of teaching staff, programs and institutions, including internal assessment and external review as well as in the governance of HEIs. The policy statement of each HEI defines students’ involvement in quality assurance. This is in line with the idea of (Jungblut, 2011) involving students in two levels of quality assurance processes: as stakeholders providing the necessary information to HEI QA units, or as members of the external review panels, which makes them directly involved in the decision-making. 

In line with the best international practices, external stakeholders are welcomed to actively participate in developing the institutional quality assurance system as well as in various internal and external evaluations. Involving students and external stakeholders in evaluation processes represents the cornerstone of further democratisation and well-being of our society. It is recognised as a great challenge and an ongoing process.

External quality assurance activities implemented by the Agency for Science and Higher Education 

The external quality assurance procedures implemented by the Agency are as follows: accreditation (initial accreditation and re-accreditation) of higher education institutions, study programs and scientific organisations; thematic evaluations and audits.  

In defining these procedures, the Agency took into account the ESG guidelines and recommendations, and particularly fitness for purpose in the context of the current state of affairs in the Croatian science and higher education. By following the latest national as well international (ENQA, Workshop report, 2009) trends, the procedures are continuously further developed. 

In the first years of the Agency's work the emphasis was on initial accreditation of study programs since in this period all programs in Croatia were restructured in line with the Bologna principles and the programme accreditation enabled closer inspection of the content of the programs. 

In the second phase, after the Bologna study programs were already launched, and after the adoption of the new legal framework in 2009, a need arose to change the concept and the emphasis from initial accreditation to the institutional re-accreditation which should provide a comprehensive insight in the all activities of an institution, not only research and teaching activities, but also the administrative aspects of its work and the dedication of the institution to safeguarding and promoting its own quality. The outcome of the re-accreditation procedure is a report with a quality grade, which serves as a basis for the accreditation decision. 

The responsibility of the higher education institutions for establishing quality monitoring mechanisms and the level of their integration in an efficient and effective quality assurance system is assessed within the audit procedure.  If the quality assurance system of the assessed HEI meets the stated criteria, it receives a certificate valid during a five-year period, or becomes subject to re-audit during a period of 18 months. 

Due to the identified need to look into specific topics or phenomena in more detail, a model of thematic evaluation was developed. This model was implemented at all public research institutes in 2011, looking into their efficiency and justifiability of their public funding. 

Experience and good practices in conducting external evaluations

The adoption of the new legal framework in 2009 enabled the Agency to independently redefine the external quality assurance model in line with the ESG and the needs of Croatian higher education.  The emphasis was put on the development of documentation for the external quality assurance procedures (criteria, guidelines for drafting the self-evaluation reports, guidelines for drafting the reports by the review panels, etc.)

The documentation was based on the Agency's previous experience in implementing the external evaluation procedures, as well as international experiences and best practices.  The documents were sent to foreign experts in USA and Europe for review, and their suggestions were used to amend them.  In line with the strategic dedication of the Agency to build a partner relationship with all stakeholders, all documents were sent to public discussion, and stakeholders' suggestions were incorporated in the documentation; in addition to this, stakeholders' suggestions are taken into account during the implementation of the procedures. 

The expert body of the Agency is the Accreditation Council.  It gathers representatives of the academic community, businesses and students.  In order to enhance reliability of the procedures and their outcomes, a representative of an NGO active in the field of higher education was received to the Council as a member without voting rights.  All documents connected to the external evaluation procedures were adopted by the Accreditation Council and published at the Agency website. 

In implementing these documents and the procedures, special attention is given to educating the members of the review panels, and preparing the institutions for the procedures. 

Each external quality assurance procedure starts with adoption of the annual plan and allocation of human and financial resources.  Trainings are organized for institutions included in the annual plan, in order to acquaint them with the procedure and provide clear guidelines for drafting the necessary documents.  They are also introduced to the Agency website, where they can find all necessary information, as well as good practice examples.  The website also hosts a forum which the institutions can use to ask additional questions connected to the procedures, which further enhances their transparency.   

The Agency has set the constant improvement of the science and higher education system as one of its strategic goals.  In order to achieve this goal, the Agency systematically organizes seminars and workshops the whole year round, introducing the latest trends in the field to stakeholders in Croatia.  For example, in the light of the necessity of strategic planning at HEIs all over the world (Behm; Berthold, 2011), workshops on strategic planning were organized.  Various events also covered the topics of learning outcomes, ranking, improving the teachers' competences, updating the curricula, knowledge transfer, cooperation with the labour market, enhancing mobility, etc. 

The Agency has from its very start emphasised the importance of human resources as the primary factor of development.  The basis of every reliable and successful external evaluation of an institution is a competent, objective and well-prepared review panel.  This is why much attention is given to selecting the panel and training them. 

In order to ensure objectivity and impartiality of the panel members and enable exchange of experience, foreign experts are always included in the panels in addition to Croatian experts. Since Croatia is a small country where academics in similar fields mostly know each other very well, the participation of foreign experts gives an added value to the quality of the implemented procedures. All members of the expert panels sing the Non Conflict of Interest and Confidentiality Statement which obliges them to respect the data privacy and avoid any conflict of interest or links to evaluation objects, and prevents nepotism.

For each procedure, the Agency defines a profile of experts who are competent to carry it out, in order to make the procedure fit for purpose. The experts are carefully chosen in line with the adopted criteria, and there applications are collected via a public call published on the Agency website.  The Agency has also launched an initiative to build a common European database of experts and develop a standard model of educating them.  This was suggested to ENQA which, recognizing the importance of the initiative, recommended the cooperation of European agencies in this respect.

In order to achieve consistency in the assessments done by expert panels, all procedures include training for experts directly before the site visit. The experts participating in the audit procedures have to go through a comprehensive training delivered within a seminar and a workshop.  Those who successfully finish the training receive a certificate and their names are entered in the auditors' database.  Foreign experts can use a distance learning training course. 

A student representative is always included in the panel as an equal member.  Students also apply via the public call, or are suggested by the student organisations.  Students have proven to be very active, well-acquainted with the legal framework and the international trends, objective and competent members of the expert panels.  

The expert panels in the audit procedure always include a representative of the business community. Since businessmen are well acquainted with the quality assurance systems in companies, and introduced to the higher education system, their contribution is highly valued in connecting the education system with the world of business. 

The compulsory training for the experts provides basic information on the Croatian higher education system, legal framework, the ESG and the procedure itself.  Special attention is given to the national criteria which serve as a basis for formal decisions, because it is necessary to ensure that all members are well acquainted with the criteria so that they can consistently apply them during the procedure.  It has been proven useful that the training also serves to discuss the documents delivered by the institutions and agree on the questions to be asked during the site visit.  

The panel also holds short meetings during the site visit in order to constantly discuss the collected evidence and agree on the common decisions, which is completed at the final panel meeting.  The expert panel is obliged to produce a draft report on the final day of the site visit, and the panel president coordinates the drafting of the final report. The quality of the panel's work is subject to their self-evaluation, and is also evaluated by the institutions they visit. 

Conclusion 

After five years of experience and at the end of the first decade of implementation of Bologna process ASHE was reported that enhancing employability stays the ultimate priority of the reform. The evolution towards process-oriented and interdisciplinary work organisation increasingly requires employees to be adaptable, to develop problem solving skills and to work in teams. It is important to bear in mind that Croatia also faces problems of understanding employability of students that finished the first cycle by employers and the business sector. Raising employability is a key issue for improving the functioning of labour markets. Graduates’ employability thus has to become a key mission for HEIs.

Critically assessing the ECTS implementation in terms of both learning outcomes and student workload, for all Bologna cycles, students reported that ECTS were not able to fully reflect the student workload.  What has to be done to make improvements in this segment was considered by HEIs and the revision process has started on most of them. The learning outcomes also have to be redesigned and connected with the Croatian Qualifications Framework.

The level of mobility and internationalisation is far from satisfactory. This is an area which requires much further work, and the space for improvement is ample. Mobility is mostly achieved through the European Union ERASMUS program. Students are faced with numerous problems with mobility: recognition of periods of study abroad, recognition of ECTS, delivering English language courses on Croatian HEIs, student support services etc.

Great improvement towards transparency was done in 2010 by the introduction of the State Matura with the goal of providing equal access to higher education system to all candidates. 

Successful implementation of reforms is always a huge challenge for all stakeholders, including the Agency for Science and Higher Education.  A clear vision and well-defined strategic goals and support and cooperation of all stakeholders enable it to overcome the challenges posed by the reform.   The transparency of the Agency's work as a public institutions, the experience of developing an internal quality assurance system and the experience of implementing ESG to the external quality assurance processes have been highly helpful in better understanding the challenges faced by other stakeholders in the higher education system. 

References

1.	Act on Quality Assurance in Science and Higher Education (Official Gazette, 45/09)
2.	European Association for Quality Assurance in Higher Education (2005) Standards and Guidelines for Quality Assurance In the European Higher Education Area, Helsinki
3.	European Association for Quality Assurance in Higher Education (2009) Standards and Guidelines for Quality Assurance In the European Higher Education Area-3rd edition, Helsinki
4.	Communique of the Conference of Ministers responsible for Higher Education (2003) Realising the European Higher Education Area, Berlin
5.	Communique of the Conference of European Ministers responsible for Higher Education (2005) The European Higher Education Area – Achieving the Goals, Bergen
6.	Ministry of Science, Education and Sports (2005) - Educational System Development Plan 2005 - 2010, Zagreb
7.	Jungblaut J. (2011) Student Participation in Higher Education Governance. In: Leadership and Governance in Higher Education, Vol. 2
8.	ENQA Workshop report (2009) Programme-oriented and institutional-oriented approaches to quality assurance: new developments and mixed approaches, Helsinki
9.	Behm B.; Berthold C. (2011) Developing Strategies for Higher Education Institution and Faculties/Departments. In: Leadership and Governance in Higher Education. Vol. 1