Tomislav Micetic - HR-MJPADT-Turning Challenges into Solutions-06102025

CAF Practitioners Network: Turning
Challenges into Solutions – CAF as
a Steering Tool for Quality and
Performance in Croatia
Tomislav Mičetić, Ministry of Justice, Public Administration and Digital Transformation
Mira Antunović, Ministry of Health
KDZ - Zoom, October 6, 2024

Contents
• Challenges in operational planning/reporting within the legal,
strategic and organizational framework in Croatia
• Guidance on annual planning and semiannual and annual
reporting (ver. 2024):
• Mission, vision, values and context
• Setting measures and objectives and KPIs for organisational level
results
• Operational objectives, output KPIs, deadlines, stakeholders and
budget
• Reporting on implementation and transparency
• Obligatory results KPIs (target values) based on CAF criteria and
strategic documents
• Example of the Ministry of Health's annual plan for 2025 and
semi-annual report for January–June 2025.
• Challenges and plans for future
• Q&A, references

CAF 2020 on
performance
/operational
management
• Criterion 2: Strategy and Planning:
• 2.1 - Identify the needs and expectations of the stakeholders, the external environment
and the relevant management information
• 2.2 - Develop strategies and plans based on gathered information
• 2.3 - Communicate, implement and review strategies and plans
• 2.4 - Manage change and innovation to ensure the agility and resilience of the
organisation
• „The strategy needs to be translated into plans, programmes, operational objectives and
measurable targets so it can be successfully executed. Monitoring and steering should be
part of the planning, as well as being attentive to the need for modernisation and
innovation, which supports the organisation in improving its functioning”
• Performance management in operations is, on the one hand, to balance
resources and targets as well as possible, and on the other hand,
efficiency and quality, ensuring that the desired effects are achieved in a
cost-efficient manner.
• Operational objectives - These are a concrete formulation of the strategic objectives, e.g.
at unit level. An operational objective can be immediately transformed into a set of
activities and tasks.
• But also (glossary): Quality management system (QMS), resources,
SMART objectives, stakeholders, sustainable development goals (SDGs),
PDCA cycle, outcome, output, organisational structure, mission,
indicators, vision

Croatian PA
& CAF 2020-
performance
management
Identified
challenges
• Strategic performance management in Croatia
• legalized/standardized
• Croatia based on CAF2020 (performance management), have additional sub
requirements on:
• 2.2. Operational management
• 2.2.1. Operational objectives and target values
• 2.2.2. Operational initiatives
• 2.2.3. Annual management plan and annual management report
• Guidance for operational planning/reporting ver.2000 not in line with CAF 2020:
• Focus:
• Strategic framework implementation – development and projects
• Budget
• Separate guidance on annual planning and reporting
• CAF/QM self assessment follow up from (Public Administration Bodies) PABs in
2020:
• Missing information/documentation/understanding for
• Enablers criteria (Plan; Check; Act)
• Results criteria (planned/actual value for criteria 6-9)
• Not all criteria are feasible for having separate plans in all PABs
• Small PABs (<50 staff) challenge
• Lack of information on:
• All PAB organizational units - business as usual tasks missing (scope of the work from legal
framework)
• Stakeholders' information
• Supporting processes and functions (HRM, finances, ecology, SDG implementation, etc.)

Croatia
challenges/
inputs for
ver.2024
• Legal changes:
• Guidelines for quality management in public administration
(Official Gazette, 65/23) – CAF 2020
• Regulation on the Evaluation of the Performance of Civil
Servants (Official Gazette, 127/24)
• AMP as input for Planned Key tasks; indicators
• OECD Accession - OECD Recommendation of the Council on
Public Service Leadership and Capability (OECD/LEGAL/0445)
• (...) Evaluation, reward and recognition of performance, talent and
initiative, especially through:
• a. Alignment and assessment of individual, team and organizational
performance through agreed indicators and criteria that are regularly
discussed and revised;

Guidance on annual planning
and semiannual and annual
reporting (ver. 2024)

Macro-(strategic/long-term)HR
Strategic
planning
Meso (operational)-PABs
Annual
planning
Micro-short-term-civ.servant
Planned
key tasks
Evaluation and
improvement
Government of
the Republic of
Croatia,
leaders,
officials
Continuous
improvement
Senior/line
management
(Semi)
Annual
reporting
Continuous
improvement
Line
Management
/ Civil
Servants
(Semi)annual
monitoring
Implementation
management;
service provision;
performance of
tasks
Citizens/
service
users/PABs
Implementation
reports
Policy cycle = PDCA cycle =
Performance management

Planned key tasks
Croatia -
hierarchy of
planning
documents,
indicators and
responsibilities
Long/medium-term strategic
documents (5+ years),
Government Program
Medium-term
strategic doc.;
laws and other
doc.
Annual
work plan
Strategic goals
(impact indicators)
Specific objectives
(outcome indicators)
Croatian Parliament ,
Government of the
Republic of Croatia
Measures from the PAB Implementation Programmes
and objectives from the scope
of work (outcome/result indicators)
Operational objectives
(output indicators)
Head of the PAB; Senior
management
Line management
Civil servants

Annual Work Plan (AWP)

Expected
benefits of
annual work
plan
• For the PAB:
• Strategic Alignment and Focus
• Clarity of Roles and Responsibilities
• Resource Allocation and Budget Justification
• Performance Management Tool
• Risk Management input
• For Stakeholders:
• Transparency and Setting Expectations and fostering
trust
• A Framework for Accountability
• Facilitates Coordination with other ministries,
development partners, and NGOs can align their own
plans and initiatives with the ministry's stated priorities,
creating synergies and avoiding contradictory actions.
Quality

Public policies performance cycle and Annual
Work Plan/Report
Content of the annual work
plan and work report
Needs/obligations
/laws / PAB
implementation
program
Strategic
and specific
goals
Context
Croatia/EU/UN/OECD
Strategies/Regulations
Socio/economic opportunities
and challenges
Impact
Outcome
1. Measure
from the IP
2. Objective
from scope
of work
1.1. Operational
objective
1.2. Operational
objective
2.1. Operational
objective
Inputs
(budget,
human
resources,
other
resources and
information,
stakeholders)
Processes/activities
Processes/activities
Processes/activities
Output/s 1.1.
Output/s 1.2.
Output/s 2.1.
Result(s)
Result(s)
External stakeholders

Guidance on annual
planning and semiannual
and annual reporting (ver.
2024)
New/changes
• Context, mission, vision, values, SWOT, PESTLE -
methodologies set according to the QM Requirements
• ~50% of QM requirements fulfilled if PABs are implementing the
Guidance
• Minimum 2-level organizational units as a framework of
instructions (Sectors)
• Alignment with strategic documents and projects in
implementation
• Objectives from the scope of work
• Annex 1. Mandatory outcome indicators – apply to all PABs –
fulfillment of quality requirements for contribution to the
implementation of horizontal strategic documents
• Annex 2. examples of goals, indicators of results and outputs
based on CAF criteria

Content of
Annual Work
Plan
• Foreword of
Head of PAB
• Introduction
(scope,
mission,
vision, values)
• Context:
• SWOT
analysis
• PESTEL
analysis

Measures from the Implementation Program and objectives from the scope of work
Ref.
No.
Measures from IP
and objectives from
scope of the work
Indicator(s) (outcome , result)
Current value of
indicator(s)
Planned value of
indicator(s)
Reference(s)
AWP
methodology
Operational objectives
Ref.
No.
Operational
goal(s)
Output
indicator(s)
Planned
value of
output
Deadline
Responsible unit
(other stakeholders)
Budget reference

Guidance on annual
planning and semiannual
and annual reporting (ver.
2024)
Measures from
the
Implementation
Program (IP) and
objectives from
the scope of work
• AWP inputs:
• Measures from the IP - are aligned from the current IP 2024-
2028:
• Agencies - measures from the IP if they are stakeholders in the
implementation of the PAB measure.
• Government of the Republic of Croatia Program 2024-2028
• Budget Explanation 2025 for PAB - objectives and performance
indicators/results
• + Mandatory indicators from Annex 1. of Guidance
• to be assigned to organizational units (General Secretariat: human
resources, public procurement, finance, occupational safety, general
affairs, etc.)
• Result indicators are following CAF and national strategic framework
• Objectives from the scope of work:
• Regular scope of TJU which is not contained in IP and budget
• Annex 2. Recommended result and output indicators

Guidance on annual
planning and
semiannual and
annual reporting (ver.
2024)
Indicators
• Performance indicators are benchmarks that provide information on the
effects of public policies, and they can be quantitative and qualitative and
must be regularly monitored and updated as necessary.
• Outcome/result indicators (ref. Guidance Chapter 3.2.5.)
• Criteria for performance indicators (results and outputs)
• Tips for developing quality performance indicators (RACER criteria)
• Output indicators (ref. Guidance Chapter 3.2.9.)
• Annex 1. Mandatory indicators (results/outcomes)
• Annex 2. Examples of indicators (results/outputs)
• Line management is responsible to:
• Include all strategic indicators from strategic documents (measures from IP)
• Define the objectives from the scope of work
• Ensure data collection and sources

Semi-annual and annual
report (AWR)

Benefits of
AWR
• For the PAB:
• Monitoring and Course Correction (Management Function)
• „Mid-course correction" tool.
• Evidence-Based Decision-Making Tool
• Internal Accountability and Motivation
• Institutional Memory (knowledge management)
• For Stakeholders:
• Accountability and Transparency (The "Report Card")
• Public to see what they have received for their tax money
• Public Trust and Legitimacy
• Informing Stakeholder Actions:
• To ensure their funds are being used effectively and for agreedupon
purposes
• Businesses to understand government priorities (e.g., in
infrastructure, energy, regulation) which helps them make
informed investment decisions
• Public discourse beyond speculation and towards evidencebased
analysis of government performance.
• Meaningful feedback and participation in public consultations on
future plans.
Quality

Implementation of measures from the Implementation Program and objectives from
the scope of work
Ref.No.
(AWP)
Measures from
the IP and
objectives from
the scope of the
work
Outcome indicator(s),
results
Current value of
the indicator
(2024)
Planned value
of indicator
(2025)
Achievement of
indicators as of
June 30, 2025.
Implementation assessment and
recommendations for the next period
AWR -
methodology
Implementation of operational objectives
Ref. No. Operational objectives Output indicator(s)
Planned
output value
Deadline for
execution
Source of financing
Output
achievement (as
of June 30, 2025)
Implementation
assessment and
recommendation
s for the next
period

AWR –
Implementation
assessment
and
recommendati
ons for the
next period
- "Achieved": if the indicator is at least 95% of the target and
there is no possibility that the achievement will be
cancelled/endangered before the planned year.
- “On track”: if the indicator is expected to reach at least 95%
of the target based on ongoing operational targets and
outputs.
- "Moderate progress": if the indicator shows positive
development, but the results so far do not allow a conclusion
to be drawn as to whether the indicator is on track to achieve
its target.
- “Deserves attention”: if there is a risk that the indicator will
not achieve the target unless significant changes are
implemented.
- "No data": the available data is not sufficient to assess the
progress of the indicator towards the target, or a data source
needs to be established (this is mandatory as an operational
target and output).
It is necessary to
add an explanation
of the deviation and
recommendations
for the next period.
The assessments
and
recommendations
and support the
PABs in continuous
improvement

Example - Ministry of Health's annual
plan for 2025 and Semi-annual report for
January–June 2025

Ministry of Health's
Annual Work Plan
for 2025
Measures from the
Implementation
Program and
objectives from the
scope of work
Ref.
No.
Measures from IP
and objectives from
scope of the work
3.1.2. Strengthening
horizontal and
vertical integration in
primary health care
Indicator(s) (outcome , result)
Number of purchased vehicles and
vessels for mobile pharmacies
% of rural and remote areas and islands
covered by the system of mobile
practices
% of family medicine specialist in
relation to the total number of
contracted doctors in the area of
general/family medicine
% occupancy of teams in family
medicine, paediatrics and gynaecology in
PHC in relation to the Primary
Healthcare Network
Current value of
indicator(s)
Planned value of
indicator(s)
Reference(s)
0
0
8
20%
National Health
Development Plan for
the Period 2021 -
2027
41% 45%
FM – 2316 (out of
2452) – 94%
GYN – 277 (out of
335) – 83%
PAED – 284 (out of
330) – 86%
FM – 95%
GYN – 84%
PAED – 87%
Nacional Recovery
and Resilience Plan
2021 – 2026
Implementation
Program of the
Ministry of Health
2025 – 2028
Healthcare Act OG
108/18, 125/19,
147/20, 119/22,
156/22, 33/23, 36/24
https://zdravlje.gov.hr/UserDocsImages/2025_Objave/Godi%C5%A1nji%20plan%20rada%20Ministarstva%20zdr
avstva%20za%202025.%20godinu.pdf

Ministry of Health's
Annual Work Plan
for 2025
Operational
objectives
Ref.
No.
Operational goal(s) Output indicator(s) Planned
value of
output
3.1.2.2. Systematic
monitoring of the
concluded
contracts on public
procurement of
mobile practices
3.1.2.3. Systematic
monitoring of the
execution of 2
concluded
contracts on the
public procurement
for mobile
pharmacies –
camper van and
boat
Execution of
financial
transactions
towards suppliers,
preparation
Drafting
agreements on the
ownership transfer
with counties
Execution of
financial
transactions
towards suppliers,
preparation
Drafting
agreements on the
ownership transfer
with counties
Deadline
Reposonsbile unit
(other
stakeholders)
1 31.12.2025 Service for the
Organisation of
Primary
Healthcare
20 31.12.2025 Service for the
Organisation of
Primary
Healthcare
3 31.12.2025 Service for the
Organisation of
Primary
Healthcare
7 31.12.2025
T808011
Budget reference
Strengthening the resilience of the
healthcare system
NRRP C5.1
T808011
Strengthening the resilience of the
healthcare system
NRRP C5.1
https://zdravlje.gov.hr/UserDocsImages/2025_Objave/Godi%C5%A1nji%20plan%20rada%20Ministarstva%20zdr
avstva%20za%202025.%20godinu.pdf

Ministry of Health's
Semi-annual report for
January–June 2025
Implementation of
measures from the
Implementation
Program and
objectives from the
scope of work
Ref.No.
(AWP)
Measures from
the IP and
objectives from
the scope of the
work
3.1.2 Strengthening
horizontal and
vertical integration in
primary health care
Outcome indicator(s),
results
Number of purchased
vehicles and vessels for
mobile pharmacies
% of rural and remote
areas and islands covered
by the system of mobile
practices
% of family medicine
specialist in relation to the
total number of
contracted doctors in the
area of general/family
medicine
% occupancy of teams in
family medicine,
paediatrics and
gynaecology in PHC in
relation to the Primary
Healthcare Network
Current value of
the indicator
(2024)
Planned value
of indicator
(2025)
Achievement of
indicators as of
June 30, 2025.
Implementation assessment and
recommendations for the next period
0 8 6 On track
0 20% 0 On track
41% 45% 50% On track
FM – 2316 (out of
2452) – 94%
GYN – 277 (out of
335) – 83%
PAED – 284 (out of
330) – 86%
FM – 95%
GYN – 84%
PAED – 87%
FM – 93%
(2280/2445)
GYN – 82%
(276/335)
PAED – 81%
(281/348)
Deserves attention.
There are no positive developments in
terms of filling the network. By ensuring
conditions for specialisations and
announcing calls for funding
specialisations, efforts are being made to
ensure the availability of staff to fill the
network, as well as by inviting regional
self-government units to develop a
system of incentive measures to attract
healthcare workers.
https://zdravlje.gov.hr/UserDocsImages/2025_Objave/Polugodi%C5%A1nji%20izvje%C5%A1taj%20o%20radu%20Ministarstva%20zdravstva%20za%20razd
oblje%20sije%C4%8Danj-lipanj%202025..pdf

Ministry of Health's
Semi-annual report for
January–June 2025
Implementation of
operational objectives
Ref.
No.
Operational
objectives
3.1.2.2. Systematic
monitoring of the
concluded contracts
on public
procurement of
mobile practices
3.1.2.3. Systematic
monitoring of the
execution of 2
concluded contracts
on the public
procurement for
mobile pharmacies –
camper van and boat
Output indicator(s)
Execution of financial
transactions towards
suppliers, preparation
Drafting agreements on
the ownership transfer
with counties
Execution of financial
transactions towards
suppliers, preparation
Drafting agreements on
the ownership transfer
with counties
Planned
output
value
Deadline
for
execution
1 31.12.2025 T808011
Source of financing
Strengthening the
resilience of the
healthcare system
Output
achievement
(as of June 30,
2025)
0 on track
Implementatio
n assessment
and
recommendati
ons for the
next period
NRRP C5.1
20 31.12.2025 0 on track
3 31.12.2025 T808011
6 achieved
7 31.12.2025
Strengthening the
resilience of the
healthcare system
NRRP C5.1
7 achieved
https://zdravlje.gov.hr/UserDocsImages/2025_Objave/Polugodi%C5%A1nji%20izvje%C5%A1taj%20o%20radu%20Ministarstva%20zdravstva%20za%20razd
oblje%20sije%C4%8Danj-lipanj%202025..pdf

Further
challenges/
solutions
• Development of (Performance/Quality) management
manual for line management
• Competencies/Capabilities of line management for
performance management for
• Definition of objectives/KPIs/measures, acknowledgements
etc. if ministries outperform or underperform
• Performance management and Risk management
• Digitalization of planning/reporting in QM IT system and
connection to HRM system/services/processes – in
progress
• Governance on the system level - whole steering system
on the state-level and for the ministries itself

AWP and
AWR
examples
• Ministry of Health - https://zdravlje.gov.hr/pristupinformacijama/strategije-planovi-i-izvjesca/godisnjiplanovi-rada/2673
• Ministry of Justice, Public Administration and Digital
Transformation (AWP and Guidance in Croatian) -
https://mpudt.gov.hr/godisnji-planovi-rada-24349/24349
• City of Zagreb -
https://www.zagreb.hr/UserDocsImages/0/Godi%C5%A1
nji%20plan%20rada%20gradskih%20upravnih%20tijela%
20Grada%20Zagreba%20za%202025.%20godinu.pdf
• Croatian Agency for Agriculture and Food -
https://www.hapih.hr/o-nama/godisnja-izvjesca-planovirada/

Q&A

References
and links
• CAF 2020 - https://www.eipa.eu/wpcontent/uploads/2023/02/CAF_2020_English.pdf
• HR QM standards (2021)
• https://razvoj.gov.hr/sustav-strateskog-planiranja-iupravljanja-razvojem-republike-hrvatske-4570/4570
(HR
strategic planing legal framework/guidance)
• https://narodnenovine.nn.hr/clanci/sluzbeni/2023_06_65_1078.html
(HR QM
Guidelines)
• https://narodnenovine.nn.hr/clanci/sluzbeni/2024_11_127_2098.html
(Regulation on the Evaluation of the Performance of Civil
Servants)
• https://legalinstruments.oecd.org/en/instruments/OECD-
LEGAL-0445