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Europaudvalget 2025
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EUROPEAN

COMMISSION

Strasbourg, 8.7.2025

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COMMISSION STAFF WORKING DOCUMENT

2025 Rule of Law Report

Country Chapter on the rule of law situation in Slovenia

Accompanying the document

Communication from the Commission to the European Parliament, the Council, the

European Economic and Social Committee and the Committee of the Regions

2025 Rule of Law Report

The rule of law situation in the European Union

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BSTRACT

The Slovenian justice system saw positive developments, with safeguards for judicial

independence and autonomy of prosecutors as regards parliamentary inquiries having entered

into force. The level of remuneration of judges and state prosecutors has increased, and work

is ongoing to strengthen the rules related to their protection. Amendments to the judicial

legislation introducing safeguards to the disciplinary framework and the appointment

procedure for Supreme Court judges, as well as reforming the judicial map are in discussion

before Parliament. Plans to amend the procedure of promotion and appointment of

prosecutors are envisaged to address staffing challenges in State Prosecution Offices.

Digitalisation efforts continue, and a full transition to electronic communication remains a

priority. The efficiency gains in recent years have not prevented backlogs from further

increasing and length of trials remain a challenge particularly in money laundering and

corruption cases, but measures taken by the Supreme Court resulted in an increase of the

number of resolved cases.

A new anti-corruption strategy and action plan were adopted. Efforts towards establishing a

track record of investigations, prosecutions and final judgments in corruption offences

continued. The Commission for the Prevention of Corruption called for more transparency

and integrity in the appointment of high-level officials such as the Police Director-General.

The lobbying guidelines were updated to clarify the existing exemptions from the registration

obligation. Transparency and clarity were improved in the updated rules on the submission of

the annual reports of political parties. The technical capabilities of the Commission for the

Prevention of Corruption improved although concerns remain on staff recruitment. Efforts to

improve transparency and competition in public procurement continued.

The media regulator generally remains independent, while concerns exist regarding its human

and financial resources, including in relation to the envisaged responsibilities. The

independence of public service media has further improved. Some steps were made to ensure

the adequate funding for public service media, such as a proposed revision of the financing

model, although challenges persist. The private media remain affected by financial

difficulties and risks to media pluralism. The framework for accessing public information

remains favourable. Some further steps were taken to improve the protection of journalists,

yet the challenges remain.

To address the Constitutional Court’s considerable caseload, the transfer of certain types of

cases to administrative courts was achieved by interpretation of legislative changes.

Legislative amendments would extend the competence of the Human Rights Ombudsperson

and allow the Constitutional Court to establish the incompatibility of office of its members.

The civic space in Slovenia continued to improve and has been upgraded to ‘open’.

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ECOMMENDATIONS

Overall, concerning the recommendations in the 2024 Rule of Law Report, Slovenia has

(made):

•

Fully implemented the recommendation to finalise the legislative process to amend the

rules on parliamentary inquiries with adequate safeguards for independence of judges and

state prosecutors, taking into account European standards on judicial independence.

Significant progress on taking further measures to ensure that the reform of judicial

appointments contains adequate safeguards for judicial independence, taking into account

European standards on judicial independence.

Fully implemented the recommendation to finalise the measures to increase the

remuneration of judges and state prosecutors, taking into account European standards on

resources and remuneration for the justice system.

Fully implemented the recommendation to complete the adoption of the new anti-

corruption strategy and action plan and begin implementation, and some further progress

on taking measures to ensure a track record of investigations, prosecutions and final

judgments in corruption offences, including in high-level cases.

Some further progress on the recommendation to further advance with the process of

adopting legislative and non-legislative safeguards to improve the protection of

journalists, particularly online, taking into account European standards on the protection

of journalists.

Some progress on ensuring that rules or mechanisms are in place to provide funding for

public service media that is appropriate for the realisation of its public service remit while

guaranteeing its independence.

•

On this basis, and considering other developments that took place in the period of reference,

and in addition to recalling the relevant commitments made under the Recovery and

Resilience Plan, it is recommended to Slovenia to:

•

Take further measures to ensure a track record of investigations, prosecutions and final

judgments in corruption offences, including in high-level cases.

Further advance with the process of adopting legislative and non-legislative safeguards to

improve the protection of journalists, taking into account European standards on the

protection of journalists.

Complete reforms to ensure that the rules or mechanisms are in place to provide funding

for public service media that is appropriate for the realisation of its public service remit

while guaranteeing its independence.

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USTICE

YSTEM

Independence

The level of perceived judicial independence in Slovenia continues to be average among

both the general public and companies.

Overall, 56% of the general population and 55% of

companies perceive the level of independence of courts and judges to be ‘fairly or very good’

in 2025

. The perceived judicial independence among the general public has significantly

increased in comparison with 2024 (45%), as well as in comparison with 2021 (47%). The

perceived judicial independence among companies has significantly increased in comparison

with 2024 (40%) as well as in comparison with 2021 (43%).

Safeguards for judicial independence and autonomy of prosecutors as regards

parliamentary inquiries are now in force, fully implementing the 2024

recommendation

Amendments to the Parliamentary Inquiries Act in July 2024, introduced

safeguards for judicial independence and autonomy of prosecutors. The legislation allows a

request to the Constitutional Court to decide on the constitutional conformity of any

parliamentary inquiry, including in relation to judicial independence and autonomy of

prosecutors

. As the amendments entered into force on 4 January 2025

, the 2024 Rule of

Law Recommendation has been fully implemented.

Proposed amendments to the Judicial Council Act and a new Judges Act aim to

overhaul the disciplinary framework for judges.

Following the public consultation in

autumn 2023, the Government on 16 May 2025 submitted to Parliament the amendments to

the Judicial Council Act which focus on the transparency and judicial review in elections of

judge-members of the Council, and on more detailed provisions on withdrawal and recusal,

with the aim of preventing potential conflicts of interests and ensure the impartiality of

Judicial Council members, both in disciplinary matters and judicial appointments

. The

amendments would also limit the term of office of Council members to a single six-year term.

The procedural changes in the Judicial Council Act concern the regulation of disciplinary

prosecutors, the suspension of judges during disciplinary proceedings, and the legal remedy

against a disciplinary decision. The amendments also envisage to address the

unconstitutionality of certain provisions on disciplinary proceedings by removing the Judicial

Council’s power to initiate disciplinary proceedings regarding judges

. A new ground for the

An overview of the institutional framework for all four pillars can be found

here.

Figures 50 and 52, 2025 EU Justice Scoreboard and Figures 51 and 53, 2024 EU Justice Scoreboard. The

level of perceived judicial independence is categorised as follows: very low (below 30% of respondents

perceive judicial independence as fairly good and very good); low (between 30-39%), average (between 40-

59%), high (between 60-75%), very high (above 75%).

The 2024 Rule of Law Report recommended Slovenia to ‘[f]inalise the legislative process to amend the

rules on parliamentary inquiries with adequate safeguards for independence of judges and state prosecutors,

taking into account European standards on judicial independence’.

This request may be made by one third of all deputies (who have not submitted the request for the

parliamentary inquiry), the Judicial Council or the State Prosecutorial Council. Until the decision of the

Court, the proposed parliamentary inquiry may not be established.

The entry into force was delayed due to an initiative to hold a referendum on the amendments. In November

2024, the Constitutional Court held that a referendum would not be permissible as the amendments aim at

addressing the unconstitutionality established in two Constitutional Court judgments. Judgment of the

Slovenian Constitutional Court, U-I-109/24, Slovenian Parliament, written input, pp. 19-20, and 2024 Rule

of Law Report, Slovenia, p. 4.

Country visit Slovenia, Judicial Council.

2024 Rule of Law Report, Slovenia, pp. 4-5.

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termination of the mandate of a Judicial Council member is envisaged, namely the member’s

appointment as the president or vice-president of a court, in view of the Council’s extensive

competences regarding the selection, appointment, and dismissal of court presidents and vice-

presidents. On 16 May 2025, the Government submitted to Parliament the new Judges Act,

which would provide, on the initiative by the judiciary, for a more precise definition of

disciplinary offences and clearer procedures for the evaluation of the judicial work by a

special body and as the basis for a judge’s promotion.

A refocus towards safeguards in the appointment of Supreme Court judges constitutes

significant progress on the recommendation concerning the judicial appointments

reform

Previous Rule of Law Reports noted a lack of adequate safeguards for judicial

independence in the reform of judicial appointments

. In 2024, due to lack of quorum, the

Parliament’s Constitutional Commission did not continue the process of the constitutional

revision regarding appointment of judges, which had been initiated with the aim of

transferring the power to appoint first-time judges from Parliament to the President of the

Republic

. On 16 May 2025, the Government submitted to Parliament the new Judges Act

which would transfer the power to appoint Supreme Court judges (if the candidate is already

a judge) from Parliament to the Judicial Council. The revised procedure would allow for

judicial review of the appointment of Supreme Court judges and the appointment decision,

would also need to be reasoned. Additionally, the proposed amendments to the Judicial

Council Act aim at strengthening the guarantees in the selection procedure for judges

conducted by the Judicial Council

. However, Parliament would keep the power to appoint

the Supreme Court President, which would not be, as envisaged previously, transferred to the

Judicial Council, and the Supreme Court expressed concerns about Parliament’s influence in

the appointment process

. Considering that the proposed legislative amendments contain

adequate safeguards in judicial appointment of Supreme Court judges, there was significant

progress on the 2024 Rule of Law Report recommendation.

Work is ongoing to strengthen rules on protection measures for judges and state

prosecutors.

In 2024, incidents involving judges and state prosecutors

led to a reflection on

whether the regulations are appropriate to ensure their protection. In November 2024, the

Ministry of Justice established an interdepartmental working group consisting of the

representatives of ministries, the police, the judiciary and state prosecution to develop

systemic solutions for enhancing protection

. Its objective is, amongst others, to review, by

The 2024 Rule of Law Report recommended Slovenia to ‘[t]ake further measures to ensure that the reform

of judicial appointments contains adequate safeguards for judicial independence, taking into account

European standards on judicial independence’.

2024 Rule of Law Report, Slovenia, pp. 6-7. In the past, Parliament rejected several candidates for Supreme

Court judges (three between 2018 and 2022 alone) or a candidate for the President of the Supreme Court (in

2010). 2023 Rule of Law Report, Slovenia, p. 6.

The proposed changes to the composition of the Judicial Council also stalled. Slovenian Parliament, written

input, p. 20.

See previous paragraph. The amendments envisage that the Council’s decision on the selection of a

candidate for a vacant judicial position should contain an assessment of the fulfilment of all criteria and

reasoning why the selected candidate meets them, or why the selected candidate meets the criteria best.

Country visit Slovenia, the Ministry of Justice and the Supreme Court.

These security incidents included an arson attack on a court president’s private house, alleged irregularities

in how the Police exercised protective measures over a state prosecutor at the Specialised State Prosecution

Office, and statements made by protesters about judges and the State Prosecutor General in front of a court

during a hearing. Association of judges condemned the arson attack. Association of judges (2024).

Country visit Slovenia, Ministry of Justice.

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the end of 2025, the regulations on protection measures, legal safeguards, and personal

assistance, evaluate systemic responses to severe security incidents against officials, and

formulate proposals for systemic improvements in judicial officials’ protection. The Ministry

of the Interior is preparing amendments to the Regulation on the protection of certain

persons, which would change the protocol regulating cooperation between the Police, the

protected judge/state prosecutor (and their superiors), the adjustment period for a protected

person, the conditions for revoking protection, and regarding the jurisdiction of the superior

of the protected person in the protection process. In December 2024, the Parliament

Committee on Justice addressed the attacks on the judiciary and efforts to discredit it, as well

as the responsibility of politicians to respect the judiciary and uphold the rule of law

Quality

Full transition to electronic communication in administrative, civil and commercial

cases remains a priority, while pilot trials are planned for criminal cases.

Advanced case

management tools are used for all courts and by the Supreme Court to assist in the allocation

of resources. The electronic communication tools show only small improvements, while

advances could be made particularly in the State Prosecution Offices, and before courts in

criminal, civil and administrative cases

. In 2025, the full transition to e-communication in

administrative, civil and commercial cases for all courts and participants in court proceedings

remained a priority task for the Ministry of Justice and the Supreme Court, and several tools

were being implemented in 2025. The Ministry aims to equip 19 courts with

videoconferencing systems by mid-2026, enabling remote hearings. It is also developing a

solution for e-authentications with a centralised register. In 2024, a speech-to-text

application, aiming to address staffing challenges, was implemented in all courts. The

introduction of electronic communication in criminal cases remains a priority as well, despite

delays in upgrading IT systems of State Prosecution Service and the Supreme Court. The

Ministry of Justice established a working group in 2024, tasked to identify and address the

delays. The transfer of e-documents between the police units and prosecution service is being

tested, and all police units would be included in 2025

. The application for viewing and

annotating electronic court cases is currently in use in district courts in insolvency cases,

while its use in civil and criminal procedure was being tested in beginning of 2025. All the

staff at the Administrative Court have been trained for transition to the transition to electronic

Among its conclusions, it strongly condemned the protests held in front of a court organised with the intent

of exerting pressure on the judiciary. Parliament (2025), written input, p. 16.

2025 EU Justice Scoreboard. In 2024, apart from the improvements in machine-readability of judicial

decisions (Figure 48), no change was made in the digitalisation of justice compared to the situation in 2023.

Figures 40-48, 2025 EU Justice Scoreboard. Since September 2024, filing of electronic applications and

documents via the e-Justice portal, including electronic communication, is also possible in judicial redress

procedures of former holders of qualifying liabilities of banks. Slovenian Government (2025b), written

input, p. 7.

However, the plan to start pilot testing of e-communication between prosecution service and district court in

Kranj was postponed from January to autumn 2025 (in 2025, additional testing and adjustment of e-

communication between the Supreme Court and the Supreme State Prosecution Office took place). As part

of RRF, the eSpis application has begun additional upgrades to enable integration with judicial procedure

systems and to ensure electronic access for participants and their legal representatives to electronic case

files. A new security scheme is being implemented, and the e-Justice portal – through which parties and

their legal representatives carry out electronic actions in digitally supported court procedures – is also being

updated. Slovenian Government (2025a).

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communication, planed in autumn 2025

. The implementation of real-time subtitling of court

hearings for hearing impaired users is planned for 2025, as well as an IT solution for

recording and managing financial obligations in the judiciary for the criminal and later for

other judicial proceedings.

Proposed amendments on judicial map reform would merge first instance District and

Local Courts.

As stated in past Rule of Law Reports, the split between the first instance

courts has long been identified as affecting the efficiency of the courts, and the previous

attempts to conclude this reform have not been successful

. On 16 May 2025, Government

submitted to Parliament the new Courts Act which would merge District and Local Courts

(and keep 11 District Courts only, making all first instance judges into District Court judges),

while retaining the geographical distribution of court units

. The primary objective is to

equalise the workload across the eleven judicial districts, thereby enhancing the efficiency of

courts. The proposed law also emphasises the responsibility of court presidents for the

effective functioning of the court

. The Judicial Council has stated its support for this

optimisation but warned of two past unsuccesful reforms which negatively affected the length

of court proceedings

. With regard to the network of local courts, the Judicial Council found

that an analysis would be appropriate to determine whether any of them should be abolished,

as some operate with only one or two judges but with a larger number of public servants who

could be more effectively reassigned to other courts.

With the increases in the level of remuneration of judges and state prosecutors the

recommendation is fully implemented

Following a Constitutional Court judgment in

June 2024

, the Government increased the salaries of judges and state prosecutors by

In June 2025, testing of electronic serving to public bodies was nearing its end. A significant part of the

digitalisation investments is co-funded from the Recovery and Resilience Facility (Target no. 105),

requiring the authorities to finalise them by June 2026. The Supreme Court continues to upgrade and further

develop IT tools to facilitate the decision-making process such as the collaborative virtual sessions (eSEJE),

the internal search engine and the smart query (DoR) to identify and classify submissions and assess them

against past decision. By mid-2026, the Supreme Court is set to establish the national Central

Documentation Digitalisation Centre (CDDC), which would take over the process of digitalising documents

from all courts, while the Supreme State Prosecutor's Office should fully implement the AI tool Virtual

Assistant to facilitate the decision-drafting process and set up the Green Meeting Room system to enable

teleworking. Slovenian Government (2025a), and Slovenian Government (2025b), written input, p. 7.

Currently, the court system has 55 first instance courts (44 Local Courts and 11 District Courts). 2024 Rule

of Law Report, Slovenia, p. 10. As a partial remedy, the 2009 and 2015 reforms brought Local Courts under

the stronger control of District Courts in order to even-out the caseload and reduce jurisdictional conflicts.

2020 Rule of Law Report, Slovenia, p. 5.

Local Courts would be transformed into external departments, which would continue to operate in their

local environments. The law also provides for an evaluation of the district court network after two years of

operation. On 16 May 2025, the Government submitted to Parliament amendments to the State Prosecution

Office Act, which would align the status of prosecutors with the new framework for judges (unified title,

rights, and responsibilities).

Court presidents’ key task would be to ensure efficient operation, balanced workload among judges, and

timely case resolution. The proposed law would introduce mandatory regular internal audits of the court

administration every three years, would shorten the term of court presidents (from six to five years) with the

possibility of one reappointment at the same court, and would enables the suspension of a court president.

Country visit Slovenia, Judicial Council.

The 2024 Rule of Law Report recommended Slovenia to ‘[f]inalise the measures to increase the

remuneration of judges and state prosecutors, taking into account European standards on resources and

remuneration for the justice system’.

The level of remuneration of judges and state prosecutors was largely unchanged since 2012. The 2024

Rule of Law Report, Slovenia, pp. 8-9.

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12.35% starting from January 2024

. Additionally, as part of the larger public salaries

reform, a new Common Foundations of the Public Sector Salary System Act was adopted in

October 2025, which led to the higher salary grade classifications of judges and state

prosecutors. The salary increases started in January 2025 and will be implemented gradually

until January 2028 for all public employees, including for judges and state prosecutors. In

addition, an automatic indexation mechanism was introduced into the law: if no agreement is

reached through negotiations, salary grades will be by law automatically adjusted by 80% of

the increase in the cost of living. Representatives of the judiciary nevertheless noted that

compared to the legislative and the executive branch, salaries are still lower in the judicial

branch

. Considering that the salaries of judges and state prosecutors were increased and that

an automatic indexation mechanism was introduced, the 2024 Rule of Law Report

recommendation was fully implemented.

Plans to amend the procedure of promotion and appointment of prosecutors are

envisaged to address staffing challenges in State Prosecution Offices.

As noted in the

2021 and 2022 Rule of Law Reports, State Prosecution Offices experienced staffing

shortages due to unjustifiable delays in appointments of state prosecutors, which were later

resolved

. However, due to the prolonged appointment and promotion procedures for state

prosecutors, lasting 12 months on average, the negative effects of past delays continue and, at

the end of 2024, only 216 out of 268 state prosecutor posts were occupied, only 3,8% more

than at the end of 2023

. According to the procedure, the Government approves not only the

appointment of new state prosecutors, but also promotion into a higher position (e.g. from

local state prosecutor to district state prosecutor) – following a proposal from the State

Prosecutorial Council. Consequently, a procedure to appoint a new state prosecutor following

the promotion of an existing state prosecutor could last up to two years in total

Amendments to the State Prosecution Office Act are envisaged for 2026 that would transfer

the power to promote state prosecutors from the Government to the State Prosecutorial

Council, shortening the procedures

Efficiency

The efficiency gains in recent years have not prevented backlogs from further

increasing and the length of trials remain a challenge, particularly in money laundering

and corruption cases.

Based on 2023 comparative data, the justice system continued to

function efficiently overall, except in administrative cases, where courts continued to

experience challenges in managing the increasing caseload

. In 2024, according to the latest

Supreme Court data, in total, all courts received 4% more cases and resolved 4% more cases

than in 2023, which continued to reverse the past positive trends and again slightly increased,

Slovenian Government, written input, p. 1.

For example, in January 2025, the salary of a first instance (local court) judge was about 14% lower than

the starting salary of a member of Parliament (by January 2028, the salary of the first instance judges would

be 9% lower, if, following the judicial map reform, all local court judges would become district court

judges), while the salary of a Supreme Court judge was about 8% higher than that of a minister (to be

equalised by January 2028). Country visit Slovenia, Ministry of Public Administration, Judicial Council and

Association of Judges, and Slovenian Government (2025a).

2023 Rule of Law Report, Slovenia, pp. 4-5.

Slovenian Government (2025b), written input, p. 4 and country visit Slovenia, State Prosecutor General and

State Prosecutorial Council.

Country visit Slovenia, State Prosecutor General and State Prosecutorial Council.

Country visit Slovenia, Ministry of Justice and State Prosecution Office.

Figures 1 – 14, 2025 EU Justice Scoreboard.

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by 3%, the total backlog of cases at the end of 2024

. This continued slight decrease in

efficiency could be seen in most courts, except in local, labour and social courts. In 2024, the

average length of proceedings at first instance courts slightly increased in civil cases but

remained stable in commercial cases and decreased in criminal cases

. The time needed for

the first instance courts to conduct the first hearing stagnated, taking up to 21 months in civil

and 16 months in commercial cases

. At first instance criminal courts, the average length in

2023 increased in money laundering offences (926 days) and decreased in corruption

offences (526 days) – remaining the third and second longest in the EU

. The continued

increase in the administrative courts’ caseload in administrative courts (by 7% in 2024,

compared to 2023) has led to a further increase in pending cases (by 6% end 2024), despite a

further 7% increase in resolved cases and increased efficiency of judges. At the first-instance

Administrative Court, the average length of proceedings decreased (by 1 month) to 15.8

months

Measures taken by the Supreme Court resulted in an increase in the number of resolved

cases.

The Supreme Court identified a shortage of court staff, new competences assigned to

courts by the legislation (especially in administrative courts), complex procedural rules and

inadequate courthouses as the main factors affecting the performance of the courts

. It

identified measures which seek to ensure that the number of resolved cases in courts remains

at least at the level of previous years. Proposals include the unification of case registration in

all courts, increased support for court operations by the Ministry of Justice, and some

legislation changes. In commercial cases, it found that pending cases are due to higher

number of incoming cases and increased complexity of cases, including high value of claims

and specialised exclusive competences. Proposed activities include transfer of cases to less

burdened courts, unification of case registration and implementation of case-weighting,

additional judges and assistance from other courts. The work of the Administrative Court is

closely monitored. The Supreme Court has set ambitious timeframes for all courts to

encourage them to resolve cases more efficiently and is also developing unified criteria for

quality of work of courts, encompassing formal court management measures and best

practices. In 2024, timeframes for some procedures have already been fully met (particularly

at appellate courts of general jurisdiction and social disputes). Following the gradual

implementation of measures, the number of resolved cases started to increase (by 4% in 2024

in total, compared to 2023)

Supreme Court (2025), written input.

In 2024, the average length at district courts was 25,7 months in large value civil cases (about two years in

2023), 13 months in litigious commercial cases, and 20,7 months in more serious criminal cases (21,2 in

2023, and 18,5 months in 2022). Country visit Slovenia, Supreme Court.

Values for first instance district courts.

Average length in money laundering cases was 631 days in 2023 and 1 043 days in 2022, while in bribery

cases it was 889 days in 2023 and 793 days in 2022. Figures 21 and 22, 2025 EU Justice Scoreboard.

Supreme Court (2025), written input, and Slovenian Government (2025a).

Country visit Slovenia, Supreme Court.

Supreme Court (2025), written input.

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II.

NTI

-C

ORRUPTION

RAMEWORK

The perception among experts, citizens and business executives is that the level of

corruption in the public sector is relatively low.

In the 2024 Corruption Perceptions Index

by Transparency International, Slovenia scores 60/100 and ranks 13

in the EU and 36

globally

. This perception has been relatively stable over the past 5 years

. The 2025

Special Eurobarometer on Corruption shows that 85% of respondents consider corruption

widespread in their country (EU average 69%) and 33% of respondents feel personally

affected by corruption in their daily lives (EU average 30%). As regards businesses, 84% of

companies consider that corruption is widespread (EU average 63%) and 42% consider that

corruption is a problem when doing business (EU average 35%). Furthermore, 26% of

respondents find that there are enough successful prosecutions to deter people from corrupt

practices (EU average 36%), while 13% of companies believe that people and businesses

caught for bribing a senior official are appropriately punished (EU average 33%)

The recommendation to adopt the new anti-corruption strategy and action plan was

fully implemented

The new Resolution on the prevention of corruption was adopted by

Parliament on 28 March 2025. The Resolution takes a strategic and ‘whole-of-society’

approach, covering the public and private sectors, civil society, media, and the public. It

provides sector- and policy-specific objectives to mitigate corruption risks, increase

transparency, integrity and accountability, and strengthen the enforcement of rules on

conflicts of interest, lobbying, political party financing, public procurement, public spending

and whistleblower protection. It sets out that appointments to public sector and state-owned

bodies must be free from undue influence, that the effectiveness of the prosecution of corrupt

practices must be improved, and that cooperation between supervisory institutions and public

sector cooperation with civil society must be strengthened. The Commission for the

Prevention of Corruption (CPC) adopted the corresponding Action Plan for the

Implementation of the Resolution on 23 June 2025. The Action Plan includes concrete

measures to address the strategy’s broader and more strategic objectives, including those with

high corruption risks, and with specific timelines for their implementation. Amendments to

the Action Plan over time will be possible to reflect evolving risks. In March 2025, a working

group was set up to determine whether the Integrity and Prevention of Corruption Act (IPCA)

requires updating

. In view of these developments, the 2024 Rule of Law Report

recommendation has been fully implemented.

Some further progress was made towards establishing a track record of investigations,

prosecutions and final judgments in corruption offences

In 2024, several open and

major investigations from previous years were concluded by the police, which overall

The level of perceived corruption is categorised as follows: low (above 79); relatively low (between 79-60),

relatively high (between 59-50), high (below 50).

In 2020, the score was 60, while in 2023 the score is 60. The score significantly increases/decreases when it

changes more than five points; improves/deteriorates (changes between 4-5 points); is relatively stable

(changes from 1-3 points) in the last 5 years.

Data from Special Eurobarometer 561 (2025) and Flash Eurobarometer 557 (2025).

The 2024 Rule of Law Report recommended Slovenia to ‘complete the adoption of the new anti-corruption

strategy and action plan and begin implementation’.

The Action Plan is conceived as a living document. The CPC must report on implementation annually.

Slovenian Government (2025b), written input, p. 10. Country visit Slovenia, Ministry of Justice, Ministry of

Public Administration, Parliament Secretariat, the CPC and Transparency International.

The 2024 Rule of Law Report recommended Slovenia ’to take measures to ensure a track record of

investigations, prosecutions and final judgments in corruption offences, including in high-level cases’.

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transmitted to the state prosecution offices many more corruption cases and crimes with

elements of corruption (695 cases) compared to 2023 (212 cases)

. Looking at the six main

corruption offences, in 2024 the State Prosecution Office managed to reduce the backlog of

unresolved criminal notifications (181; 375 in 2023), although there were considerably fewer

indictments and convictions

and no foreign bribery cases were reported or investigated

While no judgments have been delivered since 2020 in high-level corruption cases,

investigations and prosecutions are progressing in some high-level cases

. Operational

cooperation and training between the Specialised State Prosecutor’s Office and the General

Police Directorate on the investigation of corruption offences intensified

. Following the

2024 internal peer review that found deficiencies in the effectiveness of prosecutions of local

officials, mainly relating to abuse of functions and misuse of public financing resources, a

specialised working group was established to develop and share best practices, develop

uniform or comparable approaches to the conduct of pre-trial proceedings. Targeted training

of state prosecutors started in December 2024

. At the same time, the state prosecution

reported that their capacity to access information and to collect evidence on natural persons,

including banking information, in an efficient way has been impacted by the changes to the

Criminal Procedural Code enacted last year, as a judicial decision is now required for the

acquisition of such data, which may also affect international cooperation

. On 16 May 2025,

the Government submitted to Parliament amendments to the State Prosecution Office Act,

which aim to contribute to more effective prosecution of corruption by facilitating the filling

of state prosecutor’s post at the Specialised State Prosecutor’s Office . Cooperation between

the European Public Prosecutor’s Office and the national prosecution offices continues to

work well

. In light of these developments, there has been some further progress in the

implementation of the recommendation made in the 2024 Rule of Law Report.

These data concern ten offences, among them six classical corruption offences, as well as two offences

relating to abuse of position and two relating to electoral process. They involved 130 natural persons and 16

legal persons. Slovenian Government and Police Economic Crime Division (2025), written input, p. 21, and

p. 1, respectively, and country visit Slovenia, Ministry of Interior, Police and NBI, and Prosecution

Services.

In 2024, state prosecutors requested investigative judges to conduct 12 investigations (89 in 2023) and

launched 13 indictments (33 in 2023) on corruption. Courts adjudicated 15 corruption cases at first instance

(29 in 2023), handed down 11 convictions (21 in 2023), 3 acquittals (4 in 2023) and 1 dismissal (4 in 2023),

and imposed 4 prison sentences (12 in 2023) and 7 conditional sentences (8 in 2023). Slovenian

Government (2025b), written input, p. 18.

The OECD Working Group on Bribery carried out a high-level mission to Slovenia in February 2025 to

discuss its concerns relating to the implementation of the OECD Anti-Bribery Convention. OECD (2025).

These include an ongoing trial involving a former Prime Minister concerning a controversial land purchase,

a criminal investigation into a criminal complaint against the current Prime Minister in relation to

irregularities in political interference in the appointment of the former Police Director-General (who

resigned in January 2025) and a criminal pre-trial procedure concerning the procurement of premises by the

ex-Minister of Justice. Slovenian Government (2025b), written input pp. 18-21; Country visit Slovenia,

Specialised State Prosecution Office and the Police.

Slovenian Government (2025b), written input, pp. 10 and 21-22.

Country visit Slovenia, State Prosecutor General.

Country visit Slovenia, State Prosecutor General, Supreme State Prosecution Office and Specialised State

Prosecution Office. The 2024 amendments to the Criminal Procedure Act limit the possibility for Police and

prosecutors to access certain financial or communications data. As explained by the Ministry of Justice, the

changes to the Criminal Procedure Act regarding the collection of banking information of natural persons

implement the judgment of the Constitutional Court U-I-144/19_3 of 6 July 2023. See also 2024 Rule of

Law Report, Slovenia, p. 15 and related footnotes.

EPPO (2025), written input, pp. 53-55. In 2024, none of the EPPO investigations in Slovenia concerned

corruption offences, EPPO (2025), Annual Report 2024, p.55.

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Recommendations were issued to improve the transparency and integrity in the

appointment of high-level officials including the Police Director-General.

In November

2024, an Administrative Court judgment found irregularities in the procedure for the

appointment of the Police Director-General in September 2023, who subsequently resigned in

January 2025

. The Commission for the Prevention of Corruption (CPC) concluded its own-

initiative investigation into a possible infringement of the Integrity and Prevention of

Corruption Act in relation to that appointment. On 20 March 2025, it issued two

recommendations to change and improve the selection procedures for high-level

appointments to ensure greater transparency and integrity in decision-making, improve public

trust and avoid corruption risks, which closely align with the findings of the Administrative

Court judgement

. The selection procedure for a new Director-General started in April 2025

and is still ongoing. Changes announced to the Police Tasks and Powers Act to improve the

supervision of police work and prevent any political influence in decision-making in 2024 are

envisaged for end 2025. Amendments to the relevant provision in the Organisation and Work

of the Police Act (Art. 47) are being discussed among Ministries to address some of the

issues regarding the appointment and dismissal of the Director General of the Police. A

working group to coordinate the implementation of the Resolution on the National

Programme for the Prevention and Suppression of Crime (2024-2028) held its first meeting in

January 2025 to discuss an action plan and next steps

The technical capabilities of the Commission for the Prevention of Corruption are being

improved although further measures are needed to improve recruitment.

In 2024 and

2025, the CPC continued upgrading its publicly accessible web portal ‘ERAR’ to modernise

and enhance the presentation, accessibility and transparency of data on the expenditure of

public funds as well as information on asset declarations, lobbying and business restrictions.

However, the March 2025 ‘ERAR’ upgrade uncovered multiple errors regarding data on

public spending, apparently originating in the underlying databases from which the data were

extracted as well as the huge amount of data involved

. The CPC’s internal system and

database ‘Corruptio’ is also being upgraded so as to provide a ‘one-stop-shop’ to submit

reports under the Integrity and Prevention of Corruption Act and improve the efficiency of

the CPC’s monitoring of the reporting obligations. The overall aim is to strengthen

transparency and oversight, reduce corruption risks and boost integrity. The CPC’s 2025

budget was increased for technical support, although more is needed to employ additional in-

In the judgment I U 1401/2023-85, the Administrative Court found that the act of the Special Selection

Board of the Council of Officials was unlawful due to insufficient reasoning as to why the selected

candidate fulfilled the required leadership experience criterion. The parliamentary inquiry and the pre-trial

investigation initiated in 2024 into allegations of undue political influence in this appointment are still

ongoing. See also 2024 Rule of Law Report, Slovenia, p. 16 and related footnotes.

The CPC’s recommendations call for changes to the Government’s rules of procedure to ensure that

decisions on appointments or dismissals are more detailed, reasoned and justified. CPC (2025e) and CPC

(2025f). The CPC had made similar recommendations to the Government in December 2022. One of the

objectives of the 2025 Resolution on the Prevention of Corruption is for all stages of the appointment and

recruitment procedures in the public sector to be transparent, independent of undue influence and ensure

equal treatment of persons, pp. 8 and 22-23.

The Working Group is led by the Police and includes representatives from the relevant ministries,

prosecution offices, the Court of Audit and the FIU amongst others. One deliverable is an international

conference held in May 2025 bringing together foreign and domestic experts in the field of protection of

national and EU financial interests, and the fight against corruption. Slovenian Government (2025b),

additional written input, p. 10, and country visit Slovenia, Government.

The CPC has since apologised for the detected malfunctions and has taken steps to rectify the situation.

CPC (2025d) and Country visit Slovenia, CPC.

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house experts to manage these complex systems

. A new CPC Deputy was appointed in

August 2024 although difficulties in recruitment persist given that overall staffing remains at

similar levels as in the past two years. While the CPC has continued its efforts to recruit more

staff, it still faces difficulties to find the right qualified candidates, a situation that civil

society continues to express concerns about

The lobbying guidelines were updated to clarify the existing exemptions from the

obligation to register as a lobbyist.

In December 2024, the CPC issued updated guidelines

on lobbying to bring them in line with a Supreme Court judgment of September 2024 and to

provide a more comprehensive explanation of the provisions of the Integrity and Prevention

of Corruption Act that govern lobbying activities. The updated guidelines clarify that elected

representatives of an interest organisation that do not have a (legal) representative specifically

provided for by law (e.g. associations, civil initiatives, housing communities) may carry out

lobbying activities without the need to register or report

. The CPC noted low reporting

levels about lobbying contacts especially at local level whereas reporting by the ministries

and parliament works well. The CPC and stakeholders consider that amending the law to

align the respective reporting deadlines for contacts between interest representatives and

officials would improve the functioning and transparency of the lobbying system

Rules on the content and method of submission of the annual report of political parties

were updated to ensure greater transparancy and clarity as regards their financing.

The

rules on the annual reports of political parties were amended so as to align them with the

Political Parties Act revised in 2023

. The rules determine the content, forms and method of

submission of a political party’s annual report to the Agency for Public Legal Records and

Related Services and of its publication. The technical changes require parties’ accounts to

include amounts transferred to or received from affiliated parties and political foundations

operating in Slovenia or other Member States for projects of common interest and the

amounts spent to implement such projects. Moreover, these amounts are to be recorded

separately from their normal political activities and must be used only for the designated

purposes set out in a written agreement

. The new rules are intended to enhance transparency

An agreement between the CPC and the Ministry of Digital Transformation (MDT), that took over

responsibility for the management of the public sector’s servers last year, has been deferred to 2026 from

August 2024 as the MDT has not yet adopted its leasing policy.

The technical upgrades are currently outsourced and will take place in phases. The CPC’s total 2025 budget

is around EUR 3.1 million. It operates with about 50% staff capacity. Slovenian Government (2025b),

written input pp. 10 and Country visit Slovenia, CPC and Transparency International.

Judgment of the Supreme Court,

I U 1093/2019-54

of 4 September 2024. CPC (2024a), pp. 25-27.

Slovenian Government (2025b), written input, pp. 11-12, and Country visit Slovenia, CPC.

Country visit Slovenia, CPC and Transparency International. Currently, whereas lobbyists only need to

report their contacts annually, lobbied officials must do so within eight days of their contacts. As of April

2025, there were 85 registered lobbyists compared to 84 at the end of 2023. Of these, 36 sent reports on

lobbying activities performed in 2024. CPC (2025), p. 32. The 2025 Resolution on the Prevention of

Corruption (pp. 8-9 and 19) highlighted the absence of reporting on lobbying contacts as one of the major

challenges that need to be addressed. It calls for strict compliance with the rules on the part of both the

public and the private sectors.

The amendment was mainly necessary to comply with the 2023 amendments to the Political Parties Act.

2024 Rule of Law Report, Slovenia, p. 18.

Projects of common interest could include joint events and educational activities (seminars, consultations,

conferences, workshops, training courses, research or publishing activities and so on) that do not involve

the party’s regular operations. A party must also keep separate records and report separately on funds

transferred from its transaction account to another party or political foundation. Slovenian Government

(2025b), written input and additional written input, p. 14 and pp. 8-10 respectively.

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and clarify what financial information parties should record and publish. In 2024, the Court

of Audit carried out six political party audits, where it found only minor technical breaches,

and will carry out three more in 2025. In April 2025, it finalised its report on the European

Parliament elections

. Parliament is conducting an inquiry into suspected illegal political

party financing that allegedly involved state-owned enterprises and the misuse of public

money

Despite awareness-raising efforts, few reports of corruption were made through

whistleblowing channels.

The CPC’s second statistical report on the number of

whistleblowing reports received from internal and external reporting channels did not reveal

any information specifically on corruption. Throughout 2024, the CPC continued its outreach

and awareness-raising activities explaining how the Reporting Persons Protection Act

protects and supports whistleblowers in practice and the importance of whistleblowing

including for detecting and preventing corruption. Parliament did not receive any

whistleblower reports in 2024. The police registered only three reports none of which were

relevant to corruption or conflicts of interest. The Specialised State Prosecution Office has

not yet detected any positive effects on reporting or accusations of corruption criminal

offences deriving from the Act and maintains that it is not useful for criminal cases.

According to one civil society organisation, the law is still untested as it has not been in place

for very long and a ‘whistleblowing culture’ is still lacking

Efforts to improve transparency and competition in public procurement continued.

Businesses’ attitudes towards corruption in the EU show that 28% of companies in Slovenia

(EU average 25%) think that corruption has prevented them from winning a public tender or

a public procurement contract in practice in the last three years

. 53% of companies perceive

the level of independence of the public procurement review body (National Review

Commission) as very or fairly good

. The Single Market and Competitiveness Scoreboard on

access to public procurement in Slovenia reports 44% of single bids for 2023 (EU average

29%). Most authorities and stakeholders continue to highlight public procurement as a high-

risk area

. To enhance transparency, the Government is preparing an updated module on the

national eProcurement system that would give authorities the option to publish information

on contracts below the national thresholds for public procurement on a rolling basis in

addition to annual publication

. During 2024, the CPC conducted investigations of

Country visit Slovenia, Court of Audit.

Country visit Slovenia, Parliament Secretariat. A report is expected by the end of 2025 or early 2026.

Slovenian Government, Police and Parliament (2025), written input, pp. 12, 2 and 21, respectively. Country

visit Slovenia, Specialised State Prosecution Office and Transparency International. As clarified by the

Ministry of Justice, the Whistleblower Act is not specifically oriented toward corruption, but toward the

reporting of any breach of law within the working environment. In addition, the reporting of criminal

offences, including corruption and the protection of witnesses in criminal proceedings is regulated in the

Criminal Procedure Code and Witness Protection Act.

Flash Eurobarometer 557 (2025). This is 3 percentage points above the EU average.

Figure 59, 2025 EU Justice Scoreboard.

Slovenian Government (2025b), written input, pp. 13-15. The objectives of the 2025 Resolution on the

Prevention of Corruption include the mitigation and prevention of corruption risks in public procurement,

including in the health and infrastructure sectors, pp. 7-8 and 25-28. Cases included the healthcare sector

and the purchase of property. The high proportion of single bids, bid-rigging and market divisions was

highlighted by civil society while businesses referred to problems with licensing at the local and municipal

level. Country visit Slovenia, CPC, Specialised State Prosecution Office, Police, Court of Audit,

Transparency International, and Business Associations.

Country visit Slovenia, Ministry of Public Administration.

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misconduct in several large investment projects (e.g. purchase of real estate, acquisition of IT

equipment, concessions for water sources), and issued recommendations to the government

and respective ministries on handling corruption risks. In addition, the CPC continued to

carefully monitor state-owned enterprises, which are considered to be especially prone to

undue influence and conflicts of interest situations because of the close interaction between

the public and the private spheres

. In December 2024, the CPC clarified the rules

preventing a public-sector body from engaging in business activity with a company involving

a family member of an office holder in that particular public-sector body

. The National

Review Commission carried out several investigations into potential violations of

procurement in 26 hospitals and health-care entities and filed four cases for irregularities

III.

EDIA

LURALISM AND

EDIA

REEDOM

The media regulator generally remains independent, while concerns exist regarding its

human and financial resources, including in relation to the envisaged new

responsibilities.

The Media Pluralism Monitor 2025 (MPM) notes medium-low risk as for

the indicators regarding independence and effectiveness of the media regulatory authorities

highlighting that concerns regarding the selection processes for the media regulator’s

(Agency for Communication Networks and Services, AKOS) main bodies (namely: the

Council and Director) persist, as both bodies are appointed by the Government. The limited

resources and AKOS’s mostly passive and low-profile approach to media regulation reflect

the internal strategies set by its leadership

Moreover, in light of the ongoing reform of the

media law and the new Mass Media Act that the Government submitted to Parliament in

December 2024, aimed to update media legal framework and implement the European Media

Freedom Act (EMFA)

, the media regulator is expected to receive additional regulatory

powers

, although as indicated by some stakeholders, some further challenges remain

regarding its level of human and financial resources

. AKOS remains legally and

functionally distinct and independent from the Government

. However, some further

concerns persist as the current mechanism of appointment of AKOS’s director and members

of the AKOS Council remains under the direct control of the Government, raising some

concerns among stakeholders regarding the level of political influence on the media

regulator

. Moreover, the current human and financial resources of AKOS are assessed by

Country visit Slovenia, CPC, Specialised State Prosecution Office, and Transparency International. In

February 2025, the Business Club of Slovenian Entrepreneurs sent an open letter to the Prime Minister

calling out against what it terms as wide-spread corruption in Slovenia, especially in state-owned

enterprises. Business Club of Slovenian Entrepreneurs (2025).

CPC (2024a), pp. 10-12. The list of entities with restrictions on operations pursuant to the IPCA is publicly

available on the ERAR portal.

Country visit Slovenia, National Review Commission. The NRC was following-up on the CPC’s July 2023

recommendations concerning its analysis of corruption risks in public healthcare institutions.

Media Pluralism Monitor (2025), p. 10.

Liberties (2024), p. 557.

The reform of Mass Media Act was first announced by the Government in the second half of 2023, with

view to overhaul and update the media legal framework. 2024 Rule of Law Report, Slovenia, p. 21. The

proposed new Mass Media Law was removed from final reading in Parliament in May 2025 while the

legislative procedure is ongoing.

According to the envisaged media law reform AKOS would be equipped with the tasks, among others, in

the field of allocation of state advertising. Slovenian Government (2025b), written input, p. 22.

Media Pluralism Monitor (2025), p. 13.

2024 Rule of Law Report, Slovenia, p. 21.

Liberties (2025), p. 902. 2024 Rule of Law Report, Slovenia, p. 22.

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some stakeholders as insufficient, given the increase in its regulatory powers and the tasks

foreseen under the ongoing reform of media legal framework, in addition to its existing

regulatory powers

. AKOS funding has been separate from the state budget, relying instead

on a self-financing system based on contributions collected from the undertakings that

operate under its regulatory remit

. However, new regulatory tasks related to digital services

and media are projected to be funded by the state budget, raising some concerns among

stakeholders regarding the predictability of the annual budget allocation

The independence of public service media has further improved.

The 2022 public service

media reform has been well-received and is seen as a success in maintaining the

independence of public service media

. The establishment of a governance structure with

members who are not politically appointed has strengthened the independence of RTV

Slovenia

. Programme creators of RTV Slovenia are independent and autonomous in their

professional work

. In the assessment of the MPM, independence of public service media

scored within the medium-low risk band

. However, in December 2024, journalists’

associations cautioned that the RTV Slovenia Council overstepped its authority and

responsibilities outlined in the RTV Act by providing obligatory guidelines to RTV

Slovenia’s management

. Moreover, despite the positive developments in the public service

media, some stakeholders have continued to report challenges in implementing the new

governance structure, which also impacted the efficient functioning of both the RTV Council

and the Management Board

Some progress has been achieved on ensuring the adequate funding for public service

media although challenges persist

The Government is working on a legislative reform to

guarantee sustainable, independent, and politically neutral funding for public service media,

namely for both RTV Slovenia and Slovenian Press Agency (STA)

. To address these

concerns, the Ministry of Culture in May 2025 submitted proposed amendments to the RTV

Slovenia Act for public consideration. The changes focus on the institution’s governance, the

scope of its public service, and its funding model. The aim is to enhance the efficiency of

RTV Slovenia’s management and ensure more stable public financing by tailoring it to the

In 2024, the size of the department enforcement of media regulation, overseeing radio, television and VOD

amounted to 12 employees, what is considered disproportionate to the scope of responsibilities, Liberties

(2025), p. 903. Country visit Slovenia, AKOS. As flagged by some stakeholders, the financial statement

with budgetary implications linked to the proposed new Mass Media Act did not specify the amount of

funding allocated for the new regulatory tasks of AKOS or the number of potential additional staff assigned

to the regulatory authority for this purpose. Liberties (2025), pp. 903-904.

2024 Rule of Law Report, Slovenia, p. 23.

Liberties (2025), p. 903.

Country visit Slovenia, Association of Journalists.

Amendments to the Radio Television Slovenia Act. Country visit Slovenia, Association of Journalists. The

changes in the perception of independence are reflected also by the increase in the public trust, 2024 Rule of

Law Report, Slovenia, p. 24.

Country visit Slovenia, RTV Management Board.

Media Pluralism Monitor (2025), p. 20.

Media Pluralism Monitor (2025), p. 24.

The challenges include the remaining lack of clarity in some aspects of the division of competences

between the RTV Council and RTV Management Board. Country visit Slovenia, RTV Management Board.

The 2024 Rule of Law Report recommended Slovenia to ’[e]nsure that rules or mechanisms are in place to

provide funding for public service media that is appropriate for the realisation of its public service remit

while guaranteeing its independence’.

Country visit Slovenia, Ministry of Culture, and Liberties (2025), p. 900.

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changing inflation rates

, to provide RTV Slovenia with the necessary resources to ensure

their financial viability and effective fulfillment of their public service mission

. The

increase in RTV Slovenia’s license fee for 2025 was approved

. Although the increase has

been deemed necessary, stakeholders have questioned its long-term effectiveness, arguing

that it serves only as a temporary solution. Public service media are still dealing with severe

financial difficulties, which affect their long-term viability and decisions regarding

programme planning. With an estimated funding gap of approximately EUR 11 million

anticipated for 2025, comprehensive and durable measures to address the issue are needed

Moreover, in December 2024 the agreement on budgetary funding for STA in 2025 was

signed, guaranteeing an increase in funding for STA by 18.6% compared to 2024

Nevertheless, some concerns have been raised that any such increase is dependent on the

decision of the Government or Parliament, creating risks of undue influence

. Overall, there

has been some progress on the 2024 Rule of Law Report recommendation to ensure sufficient

funding for public service media while guaranteeing their independence. However, in view of

the overall financial crisis of the public service media, further measures will be needed.

The private media remain affected by financial difficulties and risks to media pluralism.

The media market remains highly concentrated, including at the local market

, with the

limited information on ultimate ownership

. Despite legal provisions prohibiting daily

newspaper publishers from also owning or co-founding radio or television stations,

stakeholders have reported that such practices persist

. Moreover, the concerns regarding the

transparency and fairness of the distribution of state advertising persist

100

. There are also

indications suggesting that the media market will become even more concentrated in 2025

101

Financial difficulties continue to have a significant impact on the media sector as a whole,

especially on the press media

102

. MPM notes high risk bands regarding the transparency of

media ownership, plurality of media providers, media viability and editorial independence

from commercial and owners influence

103

. The discussions in Parliament are ongoing as

regards the rules regarding assessment of media market concentrations

104

. The Association of

Journalists considers the adoption of the new Mass Media Act as necessary, despite the

concerns expressed also as for the planned model of state subsidies

105

. Some stakeholders

100

101

102

103

104

105

GOV.SI (2025).

Slovenian Government, written input, p. 22. Country visit Slovenia, Ministry of Culture.

The TV license fee was increased from EUR 12,75 to EUR 14,02 per month starting from January 2025,

after it has remained unchanged for 12 years. Country visit Slovenia, Ministry of Culture.

The labour and productions costs have increased due to inflation, while it has been emphasised that there is

a need for deep modernisation and digitalisation of RTV Slovenia. Country visit Slovenia, RTV

Management.

GOV.SI (2024).

Liberties (2025), p. 903.

Country visit Slovenia, AKOS.

Country visit Slovenia, Association of Journalists. Media Pluralism Monitor (2025), p. 7.

Liberties (2025), p. 905.

Media Pluralism Monitor (2025), p. 7.

Country visit Slovenia, Association of Journalists.

Country visit Slovenia, AKOS. Media Pluralism Monitor (2025), p. 7.

The Market Plurality area scored within the high-risk band, making the highest scoring area in the Slovene

monitoring in terms of risk bands. Media Pluralism Monitor (2025), p. 15. In general, market plurality

scores the risk band of 76 %.

The proposal of the new Mass Media Act envisages that the national competition authority, the AVK,

would be responsible for media concentration assessments.

STA (2025), Country visit Slovenia, Association of Journalists. The proposal is subject to ongoing

legislative procedure.

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indicated that the difficult financial situation of media resulted in reductions of newsroom

staff, deteriorating working conditions of journalists, and that a broader trend of media

divestment is eroding media pluralism

106

. The MPM highlights also risks of political control

over certain media outlets by political entities, undermining their editorial autonomy and

integrity of content

107

. As raised by journalists, this could result in a lack of diverse content

and a decline in overall media quality at both national and local levels

108

. As part of the

media law reform, the Government supports the adoption of a new Mass Media Act and

relevant amendments in other legislative acts, covering the necessary aspects of the European

Media Freedom Act, as part of the implementation process, addressing, among others, media

market concentrations and its impact on media pluralism, state advertising and aiming to

significantly increase the transparency of the media landscape

109

The f

ramework for accessing public information remains favourable.

Slovenia has

ratified the Council of Europe Convention on Access to Official Documents

110

. The legal

framework regulating the access to information and documents remains stable, as set out in

the Access to Public Information Access Act. Moreover, the media and journalists benefit

from an accelerated procedure pursuant to the Mass Media Act in relation to requests to

access to public information held by any public body

111

. Overall, the risk as regarding

protection of right of information has been assessed as low by MPM

112

Some further progress was made on the recommendation to improve the protection of

journalists, yet the challenges remain

113

MPM flags medium-high risk for the protection of

freedom of expression and for journalistic profession, standards and protection

114

. The

number of reported incidents concerning the safety of journalists has decreased while SLAPP

lawsuits and online harassment against journalists have continued, including at the local

level

115

. The proposed new Mass Media Act currently under legislative procedure aimed at

implementing EMFA would contain provisions regarding strengthen protection for

journalistic sources as well as the prohibition to install intrusive surveillance software on

devices used by journalists

116

. The transposition of anti-SLAPP Directive is also ongoing

117

Since the 2024 Rule of Law Report, no new alerts have been recorded on the Council of

Europe’s Platform to promote the protection of journalism and safety of journalists

118

although eleven new alerts have been reported in the Media Freedom Rapid Response

(MFRR) monitoring report, out of them, eight relating to verbal attacks, two related to

106

107

108

109

110

111

112

113

114

115

116

117

118

Country visit Slovenia, Association of Journalists, Union of Journalists.

Media Pluralism Monitor (2025), pp. 9, 18.

Country visit Slovenia, Association of Journalists and Union of Journalists.

Country visit Slovenia, Ministry of Culture.

The Council of Europe Convention on Access to Official Documents (CETS No. 205), also known as

the

Tromsø Convention,

entered into force on 1 December 2020.

Mass Media Act, Article 45.

Media Pluralism Monitor (2025), p. 12.

The 2024 Rule of Law Report recommended Slovenia to “[f]urther advance with the process of adopting

legislative and non-legislative safeguards to improve the protection of journalists, particularly online, taking

into account European standards on the protection of journalists”.

Media Pluralism Monitor (2025), p. 10.

Media Pluralism Monitor (2025), p. 11.

Country visit Slovenia, Ministry of Culture.

Country visit Slovenia, Ministry of Culture; Slovenian Government (2025b), written input, p. 23. The draft

anti-SLAPP bill was prepared by the Government and submitted for public consultation and expert

coordination on 10 December 2024.

Council of Europe, Platform to promote the protection of journalism and safety of journalists.

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physical assaults, two related to attacks to property and two amounting to interference and

blocked journalistic activity

119

. Concerns have also been raised about a systematic problem of

low reporting of SLAPP incidents by journalists

120

and ongoing use of defamation laws

against them

121

. The Association of Journalists considers that authorities’ efforts to secure

support from the Ministry of Culture for safety initiatives, including legal aid, training, and

protocols of cooperation with law enforcement authorities, have been present but insufficient,

while further efforts would be welcomed on protection and safety

122

. Overall, while

challenges remain in practice and the legal provisions on strengthening the safeguards are

still to be adopted

123

, there has been some further progress on the recommendation to

improve the protection of journalists.

IV.

THER

NSTITUTIONAL

SSUES RELATED TO

HECKS AND

ALANCES

Over two-thirds of companies surveyed in Slovenia express confidence in the

effectiveness of investment protection.

69% of companies are very or fairly confident that

investments are protected by law and courts

124

. As regards authorities relevant for economic

operators, 57% of companies perceive the level of independence of the national competition

authority (Slovenian Competition Protection Agency) as very or fairly good

125

. A number of

judicial mechanisms are in place in the Supreme Court to ensure the implementation of their

judgments, which include the possibility to substitute annulled administrative acts. However,

these mechanisms do not include fines or disciplinary actions against the responsible

officials, nor the possibility to award direct or consequential damages or compensation

126

On 1 January 2025, Slovenia had 4 leading judgments of the European Court of Human

Rights pending implementation, a decrease of 1 compared to the previous year

127

that time, Slovenia’s rate of leading judgments from the past 10 years that had been

implemented was at 88% (compared to 86% in 2024; 12% remained pending), and the

average time that the judgments had been pending implementation was 1 year and 7 months

(compared to 1 year and 2 months in 2024)

128

. The oldest leading judgment, pending

implementation for 3 years, concerns the authorities’ failure to introduce remedies that would

provide the applicants with a reasonable opportunity to challenge the Bank of Slovenia’s

2013-2014 decisions

129

. As regards the respect of payment deadlines, on 31 December 2024

119

120

121

122

123

124

125

126

127

128

129

European Centre for Press and Media Freedom, Media Freedom Rapid Response – Slovenia.

Country visit Slovenia, Union of Journalists.

Country visit Slovenia, Association of Journalists.

Slovenian Government (2025b), written input, p. 23, and country visit Slovenia, Ministry of Culture.

Figure 54, 2025 EU Justice Scoreboard. In Slovenia, 21% of companies perceive the frequent changes in

legislation or concerns about quality of law making process as the main reason for the perceived lack of

effectiveness of investment protection. Figure 55, 2025 EU Justice Scoreboard.

Figure 60, 2025 EU Justice Scoreboard.

Figure 49, 2025 EU Justice Scoreboard. The data presented reflect exclusively the mechanisms in place at

the level of the highest administrative jurisdiction; the same or other mechanisms may be in place at lower

instance administrative courts.

For an explanation of the supervision process, see the website of the Council of Europe.

All figures calculated by the European Implementation Network (EIN) and based on the number of cases

that are considered pending at the annual cut-off date of 1 January 2025. EIN (2025), written input, p. 8.

Judgment of the ECtHR, 49969/14,

Pintar and Others v. Slovenia,

pending implementation since 2021.

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there were no cases awaiting confirmation of payments (same as in 2023)

130

. On 16 June

2025, the number of leading judgments pending implementation had remained 4

131

To address the Constitutional Court’s considerable caseload, the transfer of certain

types of cases to administrative courts was achieved by interpretation of legislative

changes.

As noted in past Rule of Law Reports, for several years, the Constitutional Court

has been raising concerns about its considerable caseload, which prevents the Court from

dedicating more attention to the most constitutionally relevant cases

132

. While Parliament

rejected the constitutional amendments which aimed to reduce the Constitutional Court’s

caseload

133

, the Constitutional Court allowed the review of spatial planning acts before the

administrative courts

134

to continue, even though it had ordered Parliament to resolve the

constitutionality issue within one year

135

. In 2024, the average time needed to conclude a

constitutionality review before the Constitutional Court decreased to 472 days (600 in 2023)

while constitutional complaints took around 460 days on average (540 in 2023)

136

. The oldest

pending cases were further reduced

137

. In total, the backlog again decreased considerably (by

40%), also due to a lower number of incoming cases (by 35%)

138

Following a call by the Constitutional Court, Parliament adopted amendments allowing

the Court to establish the incompatibility of office of its members.

In May 2024, the

Commission for the Prevention of Corruption initiated misdemeanour proceedings against a

Constitutional Court judge due to a failure to report in relation to business restrictions, which

is on-going

139

. Following this case and calls by the Constitutional Court to address the gap in

its ability to act in such circumstances

140

, the Parliament President submitted amendments to

the Constitutional Court Act, which were adopted by Parliament on 25 March 2025. The

amendments explicitly state that the function of the Constitutional Court members is

incompatible with carrying out professional or other gainful activity, except when allowed by

130

131

132

133

134

135

136

137

138

139

140

Council of Europe (2025), p. 157.

Data according to the online database of the Council of Europe (HUDOC).

2023 Rule of Law Report, Slovenia, p. 30, and 2024 Rule of Law Report, Slovenia, p. 31.

Parliament decided in April 2025. Among the proposed changes were setting into the Constitution the

current list of privileged bodies that can request constitutional review, the gradual transfer of review of

local government issues and spatial planning acts to the administrative courts, and allowing the

Constitutional Court to select constitutional complaints and initiatives for constitutional review. 2024 Rule

of Law Report, Slovenia, pp. 31-32.

In 2021, Parliament adopted amendments to the Spatial Planning Act, allowing the review before the

administrative courts, unless a parallel procedure before Constitutional Court started.

The Constitution provides that the review of such acts should be before the Constitutional Court. In the

judgment published on 11 April 2025, the Constitutional Court stated that the transfer of those cases to

administrative courts is required also in view of an increasing need for factual assessments, as also required

by EU law, for which the Constitutional Court would be less appropriate, and in order to ensure the

effective judicial protection under EU law. Judgment of the Constitutional Court,

U-I-474/22-15,

20 March

2025.

Constitutional Court (2025), pp. 112-116.

On 31 December 2024, a total of 79 cases older than two years remained pending. This is a notable

improvement, as at the end of 2021, there were 553 cases pending that were up to 5 years old.

Constitutional Court (2025), p. 116.

End 2024, the Court had 1 173 pending cases (1 931 end 2023). Constitutional Court (2025), p. 116.

This issue came up in April 2024 following uncertainties regarding the existing framework when it was

reported that one of the Constitutional Court members exercised ancillary professional activities in

academia as a sole trader (‘samostojni podjetnik - s.p.’). 2024 Rule of Law Report, Slovenia, p. 31.

The Constitutional Court suggested a mechanism similar to the one in the European Court of Human

Rights, where the judges themselves vote with a qualified majority on the alleged incompatibility of office

of a judge. Rule of Law Report, Slovenia, p. 31.

kom (2025) 0900 - Ingen titel

the law. The amendments allow the President of the Constitutional Court to adopt a decision

on incompatibility of an activity of the Court’s member, which can be challenged before the

Constitutional Court.

Legislative amendments would extend the competence of the Human Rights

Ombudsperson and maintain the parliamentary appointment procedure.

The Human

Rights Ombudsperson is the National Human Rights Institution, accredited with A-Status

141

In March 2025, the Government shared with the Ombudsperson the revised amendments to

the Human Rights Ombudsperson’s Act

142

. Proposed amendments would extend the

Ombudsperson’s oversight to certain private law organisations, specifically those exercising

public powers, establish a special deputy for children’s rights (a Child Rights Ombudsman)

within the Ombudsperson’s office, grant the Ombudsperson a mandate to monitor human

trafficking, and extend the term of office of the Ombudsperson and the deputies - from six to

eight years

143

. Efforts are also underway to organise monitoring of the Convention on the

Rights of Persons with Disabilities within the Ombudsperson’s office. These amendments

have been largely welcomed by the Ombudsperson, including that the draft amendments

maintain the appointment of the Ombudsperson by Parliament, and do not envisage the

transfer of the appointment to the President of the Republic as initially planned

144

. However,

the Ombudsperson raised concerns with regard to the proposed change that the election in

Parliament would be carried out by a secret ballot (which would decrease the transparency)

and that the draft amendments do not explicitly establish the Ombudsperson’s power to

suggest that Slovenia ratifies or accedes to international human rights instruments

145

, as

recommended by the UN, although the Ministry of Justice states this right exists under

general provisions of the existing law

146

. In 2024, the Ombudsperson issued 95 new

recommendations (86 in 2023)

147

. In addition, the Ombudsperson acting in the capacity of

National Prevention Mechanism issued further 294 recommendations to various institutions

(578 in 2023). In 2024, the Ombudsperson highlighted approximately 100 especially relevant

past recommendations that remain either unimplemented or partially implemented (80 in

2023).

The civic space in Slovenia continued to improve.

The positive trend already highlighted in

past Rule of Law Reports regarding the improving situation for civil society continued, and

141

142

143

144

145

146

147

Accreditation by the Global Alliance of National Human Rights Institutions (GANHRI).

The Ombudsperson provided comments to the draft law and, in its letter of 25 March 2025, stated that it

would not be legitimate that the revision of framework continues while the selection procedure for a new

Ombudsperson is ongoing and the institution has only an acting head (since February 2025). The

Ombudsperson also raised concerns about the lack of transparency in the procedure for appointment and the

large discretionary power of the President of the Republic in the selection of a candidate. ENNHRI (2025),

pp. 422-425. On 18 June 2025, a proposed candidate for the Ombudsperson did not obtain the required 2/3

of votes of all members of Parliament.

Slovenian Government (2025b), written input, p. 25.

Country visit Slovenia, Ombudsperson. In 2024, the Ombudsperson raised concerns about the envisaged

transfer of the appointment of the Ombudsperson from Parliament to the President of the Republic, which

would not be appropriate in the Ombudsperson’s view, since the institution reports to Parliament, as is the

case for parliamentary ombudspersons. 2024 Rule of Law Report, Slovenia, pp. 32-33.

This was one of the recommendations from GANHRI Sub-Committee on Accreditation (SCA) Report,

December 2020, p. 24.

Country visit Slovenia, Ministry of Justice.

Human Rights Ombudsperson (2025).

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the civic space in Slovenia has been upgraded to ‘open’

148

. While the Government’s attitude

was reported as positive, there were some negative attitudes towards the civil society

organisations (CSOs) coming from certain public actors and media outlets owned by or

affiliated with certain political parties

149

. The new Strategy for developing non-governmental

organisations until 2030 as well as the Strategy for developing volunteering until 2030 are

being developed

150

. Their measures aim to ensure that CSOs, contribute to the realisation of

the principles of pluralism and democracy in society. As regards funding, in 2024 and

beginning 2025, several funding opportunities for CSOs were available at national level

151

148

149

150

151

Rating given by Civicus, Slovenia; ratings are on a five-category scale defined as: open, narrowed,

obstructed, repressed and closed.

ENNHRI (2025), p. 147 and Liberties (2025), pp. 95, 900 and 922-923.

Public consultation ended in January 2025; Slovenian Government (2025b), written input, p. 27.

The awards aimed at CSOs and volunteering organisations for providing effective and quality services in

the amount of EUR 12,6 million, published in June 2024, were selected at the end of 2024, while a second

call to match funding for EU projects with the co-financing of non-reimbursable costs for

projects/organisations receiving EU or EFTA grants in the amount of EUR 5,3 million, were selected in

January 2025. Another call for development and professionalisation of non-governmental organisations and

volunteering in Slovenia was published beginning of June 2025, amounting to EUR 15,7 million. Slovenian

Government (2025b), written input, pp. 27-28, and Slovenian Government (2025a). Legal challenges by

some CSOs in relation to the annulled Spring 2023 public call for funding are still pending before courts.

Liberties (2025), p. 921, country visit Slovenia, CNVOS and Peace institute, and 2024 Rule of Law Report,

Slovenia, p. 34.

kom (2025) 0900 - Ingen titel

Annex I: List of sources in alphabetical order*

* The list of contributions received in the context of the consultation for the 2025 Rule of Law report

can be found at

https://commission.europa.eu/publications/2025-rule-law-report-targeted-

stakeholder-consultation_en.

Association of judges (2024),

Press release of 8 November 2024

https://sodnisko-drustvo.si/izjava-za-

javnost-vlom-in-pozig-hise-sodnika-almirja-kurspahica/.

Business Club of Slovenian Entrepreneurs (2025),

Open letter to the Prime Minister,

20 February

2025

https://www.sbc.si/novice/2025/02/odprto-pismo-predsednika-sbc-joca-pececnika-premierju-

robertu-golobu.

Centre for Media Pluralism and Media Freedom (2025), Media Pluralism Monitor 2025, Country

report for Slovenia.

Commission for the Prevention of Corruption (2024a), Systemic Explanation on Limitation of

Business Activity of 27 December 2024.

Commission for the Prevention of Corruption (2024b), Systemic Explanation on Lobbying of 6

December 2024.

Commission for the Prevention of Corruption (2025a),

Report for 2024,

10 June 2024

https://www.kpk-rs.si/storage/uploads/5a0a2713-69c1-4d8b-b251-c2acb2eee4d9/Letno-

poro%C4%8Dilo-2024_WEB.pdf.

Commission for the Prevention of Corruption (2025b),

Annual report on the handling of

whistleblower

protection

cases

for

2024,

April

2025

https://www.kpk-

rs.si/storage/uploads/97653c8d-fb1b-4729-aae3-3cc4bdc2bcf1/Skupno-letno-poro%C4%8Dilo-ZZPri-

2024.pdf.

Commission for the Prevention of Corruption (2025c), Press release:

In view of the perceived

corruption risks in the appointment of the Director-General of Police, the Commission issues

recommendations,

30 March 2025,

https://www.kpk-rs.si/sl/novice/vse-novice/zaradi-zaznanih-

korupcijskih-tveganj-pri-imenovanju-generalnega-direktorja-policije-komisija-izdala-priporocili.

Commission for the Prevention of Corruption (2025d), Press release,

Dr. Robert Šumi: the errors

were expected and are being corrected promptly,

7 March 2025.

Commission for the Prevention of Corruption (2025e),

Recommendations of the Government of the

Republic of Slovenia in the procedure for proposing and appointing the Director-General of the

Police,

28 February 2025

https://www.kpk-rs.si/storage/uploads/4dcc2137-f1ac-4930-8be7-

8e80d51b4593/Priporocilo_oz._pobuda_06210-301-2023-57_P.pdf

Commission for the Prevention of Corruption (2025f),

Recommendations to the Officials’ Council in

the process of proposing and appointing the Director-General of the Police,

28 February 2025

https://www.kpk-rs.si/storage/uploads/25382d50-d252-4b94-80ce-

f649ac422f2e/Priporocilo_oz._pobuda_06210-301-2023-58_P.pdf

Commission for the Prevention of Corruption (2025g),

Written contribution for the 2025 Rule of Law

Report.

Constitutional Court (2024), Judgment

U-I-109/24,

20 November 2024

https://www.us-

rs.si/assets/Novice/sl_SI/46573/UI10924.pdf.

kom (2025) 0900 - Ingen titel

Constitutional Court (2025), Report for 2024, xx May 2025.

Council of Europe, Platform to promote the protection of journalism and safety of journalists.

European Centre for Press and Media Freedom, Media Freedom Rapid Response – Slovenia.

European Commission (2024),

2024 Rule of Law Report, Country Chapter on the rule of law situation

in Slovenia.

European Commission (2025),

EU Justice Scoreboard 2024.

European Commission (2025),

Flash Eurobarometer XXX on Businesses’ attitudes towards

corruption in the EU.

European Commission (2025),

Special Eurobarometer XXX on Citizens’ attitudes towards corruption

in the EU.

European

Public

Prosecution

Office

(2025),

https://www.eppo.europa.eu/assets/annual-report-2024/index.html.

Annual

Report

2024,

European Public Prosecution Office (2025),

Written input for the 2025 Rule of Law Report.

GOV.SI (2024), Press release of 23 December 2024,

Signing the STA Contract, This government

guarantees financial independence and journalistic autonomy,

https://www.gov.si/en/news/2024-12-

23-signing-the-sta-contract-this-government-guarantees-financial-independence-and-journalistic-

autonomy/.

GOV.SI (2025), Press release of 20 May 2025,

Public hearing of the amendment to the RTV Slovenia

Act,

https://www.gov.si/novice/2025-05-20-javna-obravnava-predloga-sprememb-in-dopolnitev-

zakona-o-rtv-slovenija/.

Human Rights Ombudsperson (2025),

Additional written contribution for the 2025 Rule of Law

Report.

Judgment of the Administrative Court (2024),

I U 1401/2023-85,

24 October 2024

https://sodnapraksa.si/?q=odlo%C4%8Dbe%20&_submit=i%C5%A1%C4%8Di&order=date&directi

on=desc&rowsPerPage=20&page=11&id=2015081111479817.

Judgment of the Constitutional Court,

U-I-474/22-15,

20 March 2025

https://www.uradni-

list.si/glasilo-uradni-list-rs/vsebina/2025-01-0872.

Judgment of the European Court of Human Rights,

Case of X and Others v. Slovenia,

19 December

2024

https://hudoc.echr.coe.int/?i=001-238568

Judgment of the Supreme Court,

I U 1093/2019-54,

4 September 2024.

Judicial Council (2025),

Press release of 21 March 2025

http://www.sodni-svet.si/?p=objave-095

Liberties (2024),

Rule of Law Report, Slovenia.

Liberties (2025),

Rule of Law Report, Slovenia.

OECD (2025), Press release of 19 February 2025,

Slovenia must promptly strengthen independence of

investigations and implement longstanding recommendations, says OECD Working Group on Bribery

following High-Level mission in Ljubljana,

https://www.oecd.org/en/about/news/press-

kom (2025) 0900 - Ingen titel

releases/2025/02/slovenia-must-promptly-strengthen-independence-of-investigations-and-implement-

longstanding-recommendations-says-oecd-working-group-on-bribery-following-high-level-mission-

in-ljubljana.html.

Slovenian Government (2025a),

Additional written contribution for the 2025 Rule of Law Report.

Slovenian Government (2025b),

Written input for the 2025 Rule of Law Report.

Slovenian Parliament (2025),

Resolution 214-02/25-2 (RePKRS-1)

of 28 March 2025 on the

Prevention of Corruption.

Slovenian Parliament (2025),

Written input for the 2025 Rule of Law Report.

Specialised State Prosecutor (2025),

Written input for the 2025 Rule of Law Report.

STA

(2025),

Journalists'

Association

appalled

media

bill

withdrawal,

https://english.sta.si/3428340/journalists-association-appalled-by-media-bill-withdrawal.

The Council of Europe (2020), Convention on Access to Official Documents (CETS No. 205).

Transparency International (2025),

Corruption Perceptions Index 2024.

National Legislation

The Act on Amendments to the Criminal Procedure Act (ZKP-P) of 19 June 2024.

Art. 56a and Art. 58 of the ZIntPK

Act amending the Political Parties Act (Official Gazette, No. 78/2023)

kom (2025) 0900 - Ingen titel

Annex II: Country visit to Slovenia

The Commission services held virtual meetings in March and May 2025 with:

•

Agency for Communication Networks and Services (AKOS)

Association of Journalists

Business associations: Advantage Austria & GZS

Commission for the Prevention of Corruption

Constitutional Court

Court of Audit

Energy Agency

Faculty of Social Sciences (Prof. dr. Marko Milosavljević)

Human Rights Ombudsperson Office

Judges’ Association

Judicial Council

Ministry of Culture

Ministry of Justice

Ministry of Public Administration

Ministry of the Interior

National Bureau of Investigation (NPU) and General Police Directorate (Economic

Crime division)

National NGO umbrella network (CNVOS)

National Review Commission (for public procurement)

Parliament Secretariat

Peace Institute

Radio-television Slovenia (RTV): Council (President Goran Forbici)

Radio-television Slovenia (RTV): Management Board (President Natalija Gorščak)

State Attorney General (dr. Ana Kerševan)

State Prosecution (State Prosecutor General dr. Katarina Bergant, Supreme State

Prosecution Office, Specialised State Prosecution Office)

State Prosecutorial Council

Supreme Court

Transparency International Slovenia

Union of Slovenian Journalists

* The Commission also met the following organisations in a number of horizontal meetings:

•

Amnesty International

Araminta

Civil Liberties Union for Europe

Civil Society Europe

European Civic Forum

European Partnership for Democracy

European Youth Forum,

International Commission of Jurists

kom (2025) 0900 - Ingen titel

•

International Federation for Human Rights (FIDH)

JEF Europe

Philea – Philanthropy Europe Association.

Transparency International