Addressing Educational Inequality in Croatia: The Need for Free Preschool Education By: Jessica Gonzalez

Despite the Croatian Constitution’s commitment to equal access to education, the lack of free preschool creates barriers for many children. Under Article 66 of the Croatian Constitution, everyone has the right to access education under equal conditions.[1] However, while primary school is free and compulsory, preschool education is neither mandatory nor free—it is merely optional under the Constitution.[2]  Parents are responsible for covering the costs of their children's preschool education, regardless of whether they have access to a placement.[3]  The lack of free early education before primary school exacerbates educational inequality. Therefore, Amending the Croatian Constitution to include free preschool education is essential for addressing educational inequalities and ensuring all children have an equal opportunity to succeed from the start of their academic journey.

Preschool education is widely recognized as a key factor in children's academic success, yet Croatia perpetuates inequality by limiting children's early development opportunities because access to early education, these children face developmental disadvantages before even starting primary school. Preschools in Croatia are either public or private, and while some parents receive subsidies to help cover the costs, many families remain unable to afford preschool. [4] This educational inequity disproportionately affects families with limited access to resources such as healthcare, financial stability, parental education, or favorable geographical location.[5] Croatia needs stronger early childhood development interventions to address the inequities created by the lack of free preschool. Research consistently shows that such interventions lead to better outcomes for children. [6] A constitutional amendment guaranteeing free preschool education would be a crucial step in alleviating these disparities.

While Article 7 of the Croatian Constitution allows preschools to be founded by the national government, local and regional authorities, religious institutions, or private individuals, this framework alone is insufficient. The decentralization of preschool education can lead to further inequality, as access varies significantly depending on location and resources. [7] Although preschools in Croatia are regulated by the Croatian National Educational Standard, these regulations focus on curriculum rather than ensuring equitable access to preschool education. [8] The slow increase in preschool enrollment suggests that access remains limited. If free preschool education were widely available, enrollment rates would likely rise more significantly. [9] Amending the Constitution to guarantee free preschool would help eliminate existing disparities and ensure that all children, regardless of their background have an equal start in their education.

Although Croatia acknowledges the importance of education in its Constitution, it continues to fall short when it comes to preschool education, further deepening inequities. When preschool is not free, children from marginalized backgrounds risk social exclusion. [10] The Croatian education department currently lacks comprehensive data on children who face social exclusion, but known risk factors include poverty, ethnic minority status, and developmental disabilities—all of which are linked to lower preschool enrollment. [11] Children at risk of social exclusion tend to start preschool later than their peers, and even when they do attend, they do not necessarily experience better developmental outcomes. [12] To create more opportunities for children and address these systemic issues, Croatia should amend its Constitution to include free preschool education. Doing so would promote educational equity and ensure that all children have the foundation they need to succeed.

The Croatian Constitution ensures equal access to education, but the lack of free preschool education creates significant barriers for many children. While primary education is free and compulsory, preschool is neither mandatory nor free, placing the financial burden on parents.[13] This inequality in early education limits opportunities for children, particularly those from disadvantaged backgrounds, and exacerbates developmental disparities before they even enter primary school. [14]Amending the Constitution to guarantee free preschool education would address these inequities and provide all children with a more equal start in their educational journey.

[1] Croatia Const. art. 64, https://cof.org/sites/default/files/documents/files/Croatia/Constitution%20of%20Croatia.pdf.

[2] Education in Croatia – General Early Childhood Education and Care, agencija za mobilnost i programe eu, (last visited Mar. 27, 2025) https://www.eurydice.hr/en/sadrzaj/education-in-croatia/education-in-croatia-in-general/.

[3] How to Enroll Kids in Kindergarten (Vrtić) in Croatia, expat in croatia (Mar. 28, 2024), https://www.expatincroatia.com/kindergarten-vrtic/#costs.

[4] Teachers and Parents Unite for Right to Early Education in Croatia, peoples dispatch (Nov. 1, 2022), https://peoplesdispatch.org/2022/11/01/teachers-and-parents-unite-for-right-to-early-education-in-croatia/.

[5]  Thomas Farnell, Educaiton inequality in Croatia: Challenges and needs from the perspective of education system stakeholders , lifelong learning for all network, (2024) , http://idiprints.knjiznica.idi.hr/1197/1/Educational%20inequality%20in%20Croatia.pdf.

[6] Susannah Hares et al., Let’s not leave the youngest children Behind, center for global development, (June 26, 2020), https://www.cgdev.org/blog/lets-not-leave-youngest-children-behind.

[7] Jasminka Zloković & Diana Nenadić-Bilian, Paradigm shift about childhood and the preschool and preschool education system in Croatia – situation, needs, and trends, 68 Journal of Contemporary Educational Studies 193 (

[8] Id.

[9] Id at 198.

[10] Dejana Bouillet & Sandra A. Majcen, Potential for preventing the risk of social exclusion of children in Early Education and Care in Croatia, 13 journal of pedagogy1 (2022).

[11] Id. at 14.

[12]  Id. at 22.

[13] Supra note 1

[14]  OECD Report on Early Childhood Education and Care in Croatia, (last visited march 28, 2025) https://www.oecd.org/en/topics/sub-issues/early-childhood-education-and-care.html.