Croatia criticised for ‘unambitious’ changes to 2022 science law

Croatia’s science ministry has been accused of a lack of ambition, and even incompetence, over proposed changes to the country’s 2022 science law. Critics say an opportunity has been missed to fix wider shortcomings in the research and universities system.

“This law, like all the previous ones, will not significantly change the current state of science in Croatia,” Vlatko Silobrčić, a member of the Croatian Academy of Sciences, told Science Business. “A small shift here and there will not have a significant impact.”

The 2022 law introduced multi-year block grant financing of research, based on results, and changes intended to boost employment and career progression for researchers and lecturers. But implementation of the law has been uneven. 

“It became apparent that certain of its provisions were subject to different interpretations by higher education institutions and scientific institutes,” the science ministry said in its proposal for change. “This caused legal uncertainty in the system, administrative difficulties in implementation and, in certain cases, unequal treatment of teachers, scientists and students.”

Most of the proposed amendments deal with technicalities in hiring and promoting staff, such as extending the committee deadlines from 60 to 90 days, or allowing applicants to cite all of their achievements and not only those since their last appointment.

Both the ministry and Croatian media highlighted changes that would raise the retirement age from 65 to 67 years and allow part-time students 15 year rather than 10 years to finish their studies.

The change to retirement age has been criticised for reinforcing a weakness in the system. According to Matko Marušić, professor emeritus at the University of Split, this will “allow unproductive teachers to advance and work longer, while hindering and discouraging productive ones.”

A longtime campaigner for excellence-based meritocracy, he sees little hope in the new legislation. “I am not optimistic that things will improve,” he told Science Business. “As recent changes to the law in Croatia show, the legal framework is becoming increasingly hypocritical and harmful.”

For Marušić, who analyses Croatia's university system in a recently published book, the situation is “unfavourable and constantly deteriorating” due to the criteria used for academic advancement.

“The key criterion for advancement should be scientific productivity,” he said. “In Croatia [. . .] scientific criteria are increasingly lowered, and ineffective and absurd criteria such as waiting times for promotion and age limits for remaining in a job are promoted.” 

He would also like to see better criteria for the quality of teaching at universities. “In practice, teaching is not monitored or evaluated,” he said, estimating that up to a third of teaching simply does not take place. “Under the guise of university autonomy and bad laws, universities and faculties are allowed to earn additional money by increasing enrolment quotas that have nothing to do with the needs of the labour market.” 

Lack of ambition

Dora Kršul, a reporter at Telegram.hr who covers science policy in Croatia, finds the rationale for changes “bizarre.” 

“The ministry responsible for supervising the uniform application of the law is changing the law because it is being implemented unevenly,” she said. “This primarily speaks to the power relationship in the sphere of science and higher education in Croatia, that is, the question arises as to who actually manages this system.”

Rather than raising quality, she continued, the changes appear to be designed to help vocational and applied universities who have not been complying with the law.

The Independent Union of Research and Higher Education Employees of Croatia said that the changes were “unambitious” and represent a missed opportunity for more important changes. “We think some of the changes are even negative,” it said in its statement on June 25. One of these is introduction of an “assistant” job title that allows people to be hired only for the duration of a project. 

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The union’s president, Tvrtko Smital, who was part of the 15-member working group tasked with drafting the changes, told the local media there was a “worrying lack of ambition” in the process, and “lack of competence” in terms of research experience and understanding the problems in the system.

“There is no clear will to deal with the problems,” said Smital, an assistant professor of marine and environmental sciences at the Ruđer Bošković Institute in Zagreb. “It’s a combination of unambitiousness and incompetence,” he went on, expressing his “deep frustration” with the situation. “There is no strategy, no clear thinking, and money is not being spent optimally.”

Croatia’s science ministry has not responded to requests for comment.