Europaudvalget 2025
KOM (2025) 0420
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EUROPEAN
COMMISSION
Brussels, 7.7.2025
SWD(2025) 324 final
COMMISSION STAFF WORKING DOCUMENT
2025 Environmental Implementation Review
Country Report - 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 Environmental Implementation Review for prosperity and security
{COM(2025) 420 final} - {SWD(2025) 300 final} - {SWD(2025) 301 final} -
{SWD(2025) 302 final} - {SWD(2025) 303 final} - {SWD(2025) 304 final} -
{SWD(2025) 305 final} - {SWD(2025) 306 final} - {SWD(2025) 307 final} -
{SWD(2025) 308 final} - {SWD(2025) 309 final} - {SWD(2025) 310 final} -
{SWD(2025) 311 final} - {SWD(2025) 312 final} - {SWD(2025) 313 final} -
{SWD(2025) 314 final} - {SWD(2025) 315 final} - {SWD(2025) 316 final} -
{SWD(2025) 317 final} - {SWD(2025) 318 final} - {SWD(2025) 319 final} -
{SWD(2025) 320 final} - {SWD(2025) 321 final} - {SWD(2025) 322 final} -
{SWD(2025) 323 final} - {SWD(2025) 325 final} - {SWD(2025) 326 final}
EN
EN
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Contents
EXECUTIVE SUMMARY ........................................................................................................................................... 3
PART I: THEMATIC AREAS ...................................................................................................................................... 4
1. C
IRCULAR ECONOMY AND WASTE MANAGEMENT
............................................................................................................. 4
Transitioning to a circular economy ..................................................................................................................... 4
Waste management............................................................................................................................................. 6
2. B
IODIVERSITY AND NATURAL CAPITAL
........................................................................................................................... 12
Global and EU biodiversity frameworks ............................................................................................................. 12
Nature protection and restoration
–
Natura 2000 ............................................................................................. 12
Recovery of ecosystems ..................................................................................................................................... 15
Prevention and management of invasive alien species ...................................................................................... 20
Ecosystem assessment and accounting ............................................................................................................. 21
3. Z
ERO POLLUTION
..................................................................................................................................................... 23
Clean air ............................................................................................................................................................. 23
Industrial emissions ............................................................................................................................................ 24
Major industrial accidents prevention
–
Seveso ................................................................................................. 26
Mercury Regulation ............................................................................................................................................ 28
Noise .................................................................................................................................................................. 28
Water quality and management ........................................................................................................................ 29
Chemicals ........................................................................................................................................................... 32
4. C
LIMATE ACTION
..................................................................................................................................................... 34
The EU emissions trading system ....................................................................................................................... 34
Effort sharing ..................................................................................................................................................... 35
Land use, land-use change and forestry ............................................................................................................. 36
Adaptation to climate change ............................................................................................................................ 36
PART II: ENABLING FRAMEWORK: IMPLEMENTATION TOOLS .............................................................................. 38
5. F
INANCING
............................................................................................................................................................. 38
Climate finance landmarks ................................................................................................................................. 38
Environmental financing and investments ......................................................................................................... 39
Public financial management ............................................................................................................................. 43
6. E
NVIRONMENTAL GOVERNANCE
................................................................................................................................. 47
Information, public participation and access to justice...................................................................................... 47
Compliance assurance ........................................................................................................................................ 49
EU-supported environmental capacity building ................................................................................................. 52
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3
Executive summary
In May 2016, the European Commission launched the
Environmental Implementation Review (EIR), a regular
reporting tool based on analysis, dialogue and
collaboration with EU Member States to improve the
implementation of existing EU environmental policy
and legislation (
1
). Following previous cycles in 2017,
2019 and 2022, this report assesses the progress made
while describing the main outstanding challenges and
opportunities
regarding
environmental
legal
implementation in Slovenia. The purpose of this report
is to provide information on the implementation
performance and highlight the most effective ways to
address the implementation gaps that impact human
health and the environment and hamper the economic
development and competitiveness of the country. The
report relies on detailed sectoral implementation
reports collected or issued by the Commission under
specific environmental legislation.
The main challenges set out below have been selected
from Part I of this report,
‘Thematic
areas’, taking into
consideration factors such as the gravity of the
environmental implementation issue in light of the
impact on the quality of life of citizens, the distance to
target, and financial implications. In Slovenia some
challenges have lingered since the first Environmental
Implementation Review in 2017 and require urgent
action.
Many
habitats and species
in Slovenia are
deteriorating. Forests, bogs, mires and fens, grasslands,
freshwater habitats as well as mammals, amphibians
and arthropods are faring particularly badly.
Unsustainable agricultural practices in Natura 2000
sites are subject to an infringement proceeding and
continue to impact negatively several bird species and a
butterfly species. Shifting to agricultural practices that
are compatible with the protected ecosystems has
therefore become urgent.
Despite some progress in implementing the
Urban
Wastewater Treatment Directive,
Slovenia is not yet
fully complying with its requirements. In November
2023 the Court of Justice established that Slovenia is in
breach of the directive in respect of the agglomeration
of Ljubljana because of failure to treat all the
wastewater collected. Slovenia should therefore
continue to develop and modernise its infrastructures
to increase its level of compliance and prepare for the
implementation of the recast wastewater directive.
Slovenia is vulnerable to
climate
events, with a high risk
of floods. Slovenia can do more to mitigate the impact
of floods, for example by improving the implementation
of flood risk management plans, increasing insurance
coverage and investing where possible in nature-based
solutions that address nature conservation while
ensuring flood protection.
The overall
environmental investment needed
to
enable Slovenia to meet its objectives in the areas of
pollution prevention and control, circular economy and
waste, water protection and management, and
biodiversity and ecosystems is estimated to be
EUR 1.8 billion per year, with bigger needs for water
and the marine environment. The current investment
gap in Slovenia stands at an estimated EUR 0.6 billion
per year.
On
environmental governance,
Slovenia needs to
better inform the public about their rights to access to
justice, and in general to improve public access to
courts to challenge administrative or regulatory
decisions. This is particularly important concerning
planning in the sectors of waste, water, nature and air
quality.
On the positive side, Slovenia is continuing to improve
its
waste management
system and is one of the few EU
countries on track to meet both the targets to prepare
55 % of municipal waste for reuse and recycling and to
recycle 65 % of all packaging waste by 2025. Slovenia
has continued to improve air quality by reducing
emissions in the context of the NAPCP and already
meets its 2020-2029 emission reduction commitments,
ensures full compliance with EU air quality standard and
maintains downwards emission trends.
(
1
)
Communication from the Commission to the European
Parliament, the Council, the European Economic and Social
Committee and the Committee of the Regions
–
Delivering the
benefits of EU environmental policies through a regular
environmental implementation review, COM(2016) 316 final of
27 May
2016,
http://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=COM%3A2016%3A316%3AFIN.
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Part I: Thematic areas
1. Circular economy and waste management
Transitioning to a circular economy
Advancing the transition to a circular economy in the EU
will reduce the environmental and climate impact of our
industrial systems by reducing input materials, keeping
products and materials in the loop for longer and
reducing waste generation, thus decoupling economic
growth from resource consumption. A circular economy
has considerable potential to increase competitiveness
and job creation and will also promote innovation and
provide access to new markets. With the 2020 circular
economy action plan (CEAP) (
2
) measures either in place
or legislatively advanced, Member States will now have
to focus on a swift and effective implementation.
The 2020 CEAP launched the legislative process for a set
of initiatives that will now have to be implemented by
national governments across the EU. These initiatives
were all introduced following a holistic life-cycle
approach, with measures addressing the different stages
of a product’s life cycle, from design through use to end
of life.
In the CEAP, the EU sets as its overarching objective the
doubling of its circular material use rate (CMUR) by 2030.
The CMUR is a measure of one aspect of circularity: the
share of the total amount of material used in the
economy that is accounted for by recycled waste. A
higher CMUR value means that more secondary
materials were used as a substitute for raw materials,
thus reducing the environmental impacts of extracting
primary material.
Slovenia’s CMUR increased to 8.8 % in 2023, compared
with the EU average of 11.8 % (Figure 1). This represents
an increase from 2022, following a steady decrease since
2019.
Figure 1: CMUR (%), 2013–2023
14
12
10
8
6
4
2
0
2013
2015
2017
Slovenia
2019
2021
EU-27
2023
Source:
Eurostat, ‘Circular material use rate’, env_ac_cur,
last updated
13 November
2024,
https://ec.europa.eu/eurostat/databrowser/product/view/env_ac_cu
r.
Resource productivity measures the total amount of
materials directly used by an economy in relation to gross
domestic product (GDP). Improving resource
productivity can help to minimise negative impacts on
the environment and reduce dependency on volatile raw
material markets. As shown in Figure 2, Slovenia
generated EUR 1.38 per kg of material consumed in
2023, a decrease from the years prior and below the EU
average of EUR 2.23 per kg.
Figure 2: Resource productivity (EUR/kg), 2013–2023
2,5
2,0
1,5
1,0
0,5
0,0
2013
2015
2017
Slovenia
2019
2021
EU-27
2023
NB: The unit of measurement used is EUR/kg chain-linked volume.
Chain-linked volumes focus on changes on quantities and prices of
commodities in previous years, taking account of inflation, and are
indexed to the nearest appropriate year, in this case 2015.
(
2
)
Communication from the Commission to the European
Parliament, the Council, the European Economic and Social
Committee and the Committee of the Regions
–
A new circular
economy action plan for a cleaner and more competitive Europe,
COM(2020) 98 final of 11 March 2020,
https://eur-
lex.europa.eu/legal-
content/EN/TXT/?uri=COM%3A2020%3A98%3AFIN.
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Source:
Eurostat, ‘Resource productivity’, env_ac_rp,
last updated
7 August
2024,
https://ec.europa.eu/eurostat/databrowser/product/view/env_ac_rp.
businesses, in particular small and medium-sized
enterprises, in their transition to a circular economy.
Investments into circular economy business and funding
of research and innovation are enhanced through the
Plan as well.
Links between circularity climate policies are explicitly
made. Slovenia’s long-term climate strategy to 2050
focuses on increasing material efficiency through the use
of less materials, by designing products for longer
lifetimes, with reparability and longer product use times,
by using less emitting and recyclable materials, by
reusing and recycling materials and by sharing products.
Green public procurement
Public procurement accounts for a large proportion of
European consumption, with public authorities’
purchasing power representing around 14 % of EU GDP.
Public procurement using green or circular criteria (life-
cycle analysis, PaaS (platform as a service), second hand)
can help drive the demand for sustainable products that
meet reparability and recyclability standards.
Since 2019, the green public procurement team at the
Ministry of the Environment, Climate and Energy (
8
) has
been offering substantive promotion and support. The
team has built its capacity and human resources mainly
through the LIFE integrated project
‘Care
4 climate’. Its
activities (training, helpdesk, guidelines) have increased
the capacity of public authorities regarding green public
procurement and circular procurement.
The reforms included in the circular economy
component of the national RRP strengthened the existing
green public procurement system by integrating the
principles of circular economy.
The EU ecolabel and the eco-management and audit
scheme
The number of EU Ecolabel product groups and the
number of eco-management and audit scheme (EMAS)-
licensed organisations in each country provide some
indication of the extent to which the private sector and
(
6
)
Government Service of the Republic of Slovenia for Development
and European Cohesion Policy,
Načrt za Okrevanje in Odpornost
[Recovery
and
resilience
plan],
2021,
https://www.gov.si/assets/organi-v-sestavi/URSOO/01_si-
rrp_23-7-2021.pdf
.
Government of the Republic of Slovenia,
Slovenian Development
Strategy
2030,
Ljubljana,
2017,
https://www.gov.si/assets/ministrstva/MKRR/Strategija-
razvoja-Slovenije-2030/Slovenian-Development-Strategy-
2030.pdf.
The team was in the Ministry of the Environment and Spatial
Planning before a government reorganisation.
Policies and measures
In parallel with European initiatives under the CEAP,
Member States are encouraged to adopt and implement
circular strategies at the national, regional and city levels.
These should be tailored to each national and local
reality, to harness the proximity economy’s (
3
) potential,
while following the principles of a holistic whole-value-
chain approach.
Since the launch of the online European Circular
Economy Stakeholder Platform in 2017
(
4
)
national,
regional and local authorities have used the platform to
share their strategies, roadmaps and good practices, for
example alternative business models and innovative
technologies.
Slovenia introduced its comprehensive circular economy
roadmap in 2018 (
5
), setting out the path for the
circularity transition in the country.
The circular economy is one of the priorities in the
Slovenian national recovery and resilience plan (RRP) (
6
).
The objective of component 5 is supporting the
transition of Slovenia’s linear economy to a low-carbon
circular economy, in line with Slovenia’s development
strategy 2030 (
7
). It addresses challenges related to
achieving climate neutrality by 2050, increasing material
productivity, promoting energy efficiency and eco-
innovation, improving the waste management system
and strengthening the wood-processing chain. The
circular economy component also introduces green
budgetary planning.
As part of the plan, Slovenia has developed a framework
for sustainable and green transformation, with the
objective of accelerating the transition to a circular
economy. In this context, the new legislation improves
extended producer responsibility schemes and promotes
the integration of secondary raw materials. As part of the
reform, Slovenia established a one-stop shop to support
(
3
)
(
4
)
(
5
)
European Commission, ‘Proximity and social economy
ecosystem’, European
Commission website,
https://single-
market-economy.ec.europa.eu/sectors/proximity-and-social-
economy_en.
Circular
Economy
Stakeholder
Platform
(https://circulareconomy.europa.eu/platform/en/strategies).
Ministry of the Environment and Spatial Planning of the Republic
of Slovenia,
Roadmap towards the Circular Economy in Slovenia,
Ljubljana,
2018,
https://circulareconomy.europa.eu/platform/sites/default/files
/roadmap_towards_the_circular_economy_in_slovenia.pdf.
(
7
)
(
8
)
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national stakeholders in that country are actively
engaged in the transition to a circular economy. The EU
Ecolabel is awarded to products with best-in-class
environmental performance. EMAS is a voluntary
environment management scheme aimed at reducing
the environmental impacts of organisations.
As of September 2024, Slovenia had 213 products out of
98 977, and 91 licences out of 2 983, registered in the EU
ecolabel scheme. This shows a relatively low take-up of
the products and licences but an increase from previous
years (
9
). Moreover, 10 organisations in Slovenia are
currently registered in EMAS, the same as in October
2021 (
10
).
The CMUR of Slovenia increased by 0.5 percentage
points in 2023. This represents some progress towards
the 2022 priority action to take measures to increase the
rate.
No priority actions were suggested for Slovenia on the
circular economy in the 2022 report, as they all focused
on waste. Because Slovenia’s comprehensive circular
economy policy framework is from 2018 and the more
recent measures were implemented under the RRP, the
country’s circular economy policy landscape seems to be
rather fragmented.
dependencies and building resilient value chains,
and stimulating demand for recycled content in all
products;
(v) limiting energy recovery to non-recyclable materials;
and
(vi) phasing out landfilling of recyclable or recoverable
waste.
One of the main objectives of the EU Waste Law is to
decouple economic growth from its environmental
impacts.
The EU’s approach to waste management is based on the
waste treatment hierarchy: prevention, preparing for
reuse, recycling, recovery and, as the least preferred
option, disposal (which includes landfilling and
incineration without energy recovery).
All legislative proposals in the field of waste management
put forward by the Commission since 2021 are intended
to encourage Member States to promote better product
design, to require producers to cover the costs of
managing the waste resulting from their products and to
ensure that waste is managed at the higher levels of the
waste hierarchy.
The total amount of waste generated in Slovenia has
increased over the last 12 years (Figure 3), primarily
driven by the largest waste categories, namely soils and
mineral waste from construction and demolition.
Excluding the major mineral waste categories results in
an overall downward trend in generated waste, primarily
driven by decreases in mixed and combustion waste,
while recyclable waste, the largest category, showed a
slight increase. Slovenia’s GDP showed a steady growth
from 2014, but dropped in 2020, most likely due to the
COVID-19 outbreak. Waste generation followed a similar
trend. Signs of decoupling between total waste
generation and economic development are only visible
when excluding major mineral waste.
2025 priority actions
•
Develop a unified circular economy strategy focusing
on waste prevention and resource efficiency,
especially for priority waste streams.
Adopt measures to increase the circular material
use rate.
•
Waste management
Turning waste into a resource is supported by:
(i) addressing the full life cycle of products, from
conception to end of life, by setting requirements on
the design of products to ensure that they are more
sustainable;
(ii) fully implementing EU waste legislation, which
includes the waste hierarchy, the obligation to
ensure separate collection of waste, landfill
diversion targets, etc.;
(iii) reducing waste generation per capita and in
absolute terms;
(iv) increasing the recycling rates of waste containing
critical raw materials (CRMs), with a view to reducing
(
9
)
European Commission,
‘EU
Ecolabel facts and
figures’,
European
Commission
website,
http://ec.europa.eu/environment/ecolabel/facts-and-
figures.html.
(
10
)
As of October 2024. European Commission,
‘EMAS register’,
European
Commission
website,
https://webgate.ec.europa.eu/emas2/public/registration/list.
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Figure 3: Generation of waste (total and excluding
major mineral waste), population and economic
development, 2010–2022
reuse and recycling operations are preferred over
incineration and landfilling from an environmental
perspective for most of the individual fractions of
construction and demolition waste. If available
technology were to be applied, it is estimated that the
increase in preparing for reuse and recycling would save
an additional 33 Mt of GHG emissions annually (more
than the combined annual GHG emissions from Estonia,
Latvia and Luxembourg).
The rate of preparing mineral construction and
demolition waste for reuse and recycling in Slovenia in
2022 was 70.6 %, compared with the EU average of
79.8 %. Measures to further increase the rate include
separate collection at source, for instance through
digitalised
pre-demolition
audits (
12
)
(‘resource
assessments’), and extended producer responsibility and
other economic instruments as well as upstream
measures such as increasing the recycled content in
construction products and the circular design of
construction works.
Boosting implementation
–
the 2023
Waste Early
Warning Report
This section focuses on the management of municipal
waste, for which EU law sets mandatory recycling
targets (
13
). In June 2023, the Commission published the
Waste Early Warning Report
(
14
)
identifying the general
trends in waste management and the Member States at
risk of missing 2025 waste targets (see Figure 4). Slovenia
was not considered at risk of missing the municipal waste
target or the packaging waste target.
NB: Waste generation data for odd-numbered years are interpolated.
Sources:
Eurostat, ‘GDP and main components (output, expenditure
and income)’, nama_10_gdp, accessed 15
October 2024,
https://ec.europa.eu/eurostat/databrowser/view/nama_10_gdp__cu
stom_9301905/default/table;
Eurostat, ‘Generation of waste by waste
category, hazardousness and NACE Rev.
2 activity’, env_wasgen, last
updated 30 September 2024, accessed 22 October 2024,
https://ec.europa.eu/eurostat/databrowser/view/env_wasgen/defaul
t/table?lang=en;
Eurostat, ‘Population change –
Demographic balance
and crude rates at national
level’, demo_grind, accessed 15
October
2024,
https://ec.europa.eu/eurostat/databrowser/view/demo_gind/default
/table?lang=en&category=demo.demo_ind.
Critical raw materials
Slovenia currently does not have a national framework
that focuses on the comprehensive handling of CRMs.
Slovenia also does not have a specific national or
subnational strategy on CRM circularity. However, CRM-
relevant aspects are covered by certain specific
approaches such as the management of batteries and
accumulators as well as waste batteries and
accumulators, with the aim of also improving the
circularity of CRMs. Slovenia does not have measures to
promote the substitution of CRMs and their more
efficient use in products. It also does not have measures
to require reductions in the use of CRMs.
Construction and demolition waste
Construction and demolition waste accounts for almost
40 % of all waste generated in the EU. A recent study (
11
)
by the Joint Research Centre shows that preparing for
(
11
)
(
12
)
European Commission,
EU construction & demolition waste
management protocol including guidelines for pre-demolition
and pre-renovation audits of construction works,
https://op.europa.eu/en/publication-detail/-
/publication/d63d5a8f-64e8-11ef-a8ba-
01aa75ed71a1/language-en.
European Commission,
EU construction & demolition waste
management protocol including guidelines for pre-demolition
and pre-renovation audits of construction works,
https://op.europa.eu/en/publication-detail/-
/publication/d63d5a8f-64e8-11ef-a8ba-
01aa75ed71a1/language-en.
(
13
)
(
14
)
Municipal waste consists of (i) mixed waste and separately
collected waste from households, including paper and
cardboard, glass, metals, plastics, biowaste, wood, textiles,
packaging, waste electrical and electronic equipment, waste
batteries and accumulators, and bulky waste, including
mattresses and furniture; and (ii) mixed waste and separately
collected waste from other sources, where such waste is similar
in nature and composition to waste from households (Directive
2008/98/EC, Article 3.2b).
https://environment.ec.europa.eu/publications/waste-early-
warning-report_en.
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Figure 4: Member States’
prospects
of meeting the
preparing for reuse and recycling targets for municipal
waste and packaging waste
implementation of measures necessary to meet the
targets, including through dedicated financing. On the
other hand, the Commission is pursuing enforcement
actions against those Member States that do not achieve
the targets of the Waste Framework Directive (
15
), the
Packaging and Packaging Waste Directive
16
and the
Directive on Waste Electrical and Electronic
Equipment
(
17
)
.
Municipal waste
Municipal waste generation in Slovenia increased
between 2010 and 2022. In 2022, the country generated
489 kg of municipal waste per capita, which is below the
estimated EU27 average of 513 kg per capita in the same
year (
18
) (Figure 5).
Slovenia’s rate of preparing municipal waste for reuse
and recycling has significantly increased over recent
years (Figure 6). In 2022, it was 63 %, which is
significantly above the estimated EU27 average of 49 %
in the same year. This increase is mainly due to increased
material recycling. However, the provisional reported
recycling rate based on the new calculation method for
the 2025 target was 10–20 percentage points lower.
Municipal waste incineration started in 2015 and was at
the level of 13 % of municipal waste generated in 2022.
From 2010, the landfilling rate decreased significantly to
8 % in 2022 (Figure 5).
Figure 5: Municipal waste management and recycling
(including reparation for reuse), 2010–2022
Member States not at risk of missing both the 55 %
preparing for reuse and recycling target for municipal waste
and the 65 % recycling target for packaging waste.
Member States at risk of missing the preparing for reuse and
recycling target for municipal waste but not at risk of missing
the recycling target for packaging waste
Member States at risk of missing both targets
Outside coverage
Source:
European Environment Agency (EEA),
Many EU Member States
not on track to meet recycling targets for municipal waste and
packaging waste,
briefing No 28/2022, Copenhagen, 2023. Reference
data © ESRI.
Under certain conditions, EU waste legislation enables
some Member States to postpone the deadlines for
reaching certain waste management targets for
municipal and packaging waste. Eleven Member States
have used this prerogative for 2025 targets. Slovenia was
not among them.
In the
Waste Early Warning Report,
the Commission
recommended that Member States accelerate their
efforts to improve their recycling performance. The
Commission is, on one hand, working together with the
national authorities and stakeholders to speed up the
(
15
)
(
16
)
Directive 2008/98/EC of the European Parliament and of the
Council of 19 November 2008 on waste and repealing certain
Directives,
Directive - 2008/98 - EN - Waste framework directive
- EUR-Lex.
European Parliament and Council Directive 94/62/EC of 20
December 1994 on packaging and packaging waste (OJ L 365,
31/12/1994, p. 10–23),
Directive - 94/62 - EN - EUR-Lex.
(
17
)
(
18
)
Directive 2012/19/EU of the European Parliament and of the
Council of 4 July 2012 on waste electrical and electronic
equipment (WEEE) (OJ L 197, 24.7.2012, p. 38),
Directive -
2012/19 - EN - EUR-Lex.
Eurostat,
‘Municipal waste by wate management operations’,
env_wasmun,
https://ec.europa.eu/eurostat/databrowser/view/ENV_WASM
UN/default/table?lang=en&category=env.env_was.env_wasst.
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Source:
Eurostat,
‘Municipal waste by waste management operations’,
env_wasmun, accessed 22 October 2024,
https://ec.europa.eu/eurostat/databrowser/view/ENV_WASMUN/def
ault/table.
Figure 7: Packaging waste generation, 2010–2022
Figure 6: Recycling (incl. preparation for reuse) and
landfill rates, 2010–2022
NB: There is a break in series in 2013. As of reference year 2020, new
reporting rules apply for calculating recycled municipal waste pursuant
to the targets laid down in Article 11.2(c–e) of Directive 2008/98/EC.
Slovenia has implemented the new reporting rules since reference year
2021 (ARSO/MOPE, 2024)

.
Source:
Eurostat,
‘Municipal waste by waste management operations’,
env_wasmun,
accessed
22 October
2024,
https://ec.europa.eu/eurostat/databrowser/view/ENV_WASMUN/def
ault/table.
Source:
Eurostat,
‘Packaging waste by waste management operations’,
env_waspac,
last
updated
23 October
2024,
https://ec.europa.eu/eurostat/databrowser/view/ENV_WASPAC__cus
tom_842634/default/table?lang=en.
The data shown in Figures 5 and 6 differ from the data
reported by the Slovenian authorities to show
compliance with the preparing for reuse and recycling
target of 55 % for 2025, as laid down in the Waste
Framework Directive. Slovenia reported a preparing for
reuse and recycling rate in response to the target that
was in the range of 10–20 percentage points below the
recycling rate shown in Figure 5 for reference year 2022.
Packaging waste
Slovenia’s packaging waste generation has continuously
increased since 2010 (Figure 7). In 2022, the country
generated 142 kg per capita of packaging waste, which is
still significantly below the estimated European average
of 186 kg per capita in the same year (
19
). Since reference
year 2021, all packaging placed on the market has been
included in the reported waste generation data (
20
).
Slovenia’s overall packaging waste recycling rate shows
an upward trend between 2010 and 2017 (Figure 8).
However, in 2021 it decreased to 55 %, which is below
the 2010 level, but increased to 63 % again in 2022. This
can be attributed to a switch towards using the reports
of waste treatment operators as the primary data source,
and to improvements in ensuring the quality, correctness
and accuracy of data by introducing controls in the
application for reporting (
21
).
Figure 8: Packaging waste recycling rates, 2010–2022
NB: As of reference year 2020 the rules for calculating recycled
packaging waste changed, pursuant to Article 6a of Directive 94/62/EC.
Slovenia has implemented the new reporting rules since reference year
(
19
)
(
20
)
The EU average might have been influenced by not all Member
States fully applying the reporting rules for packaging waste set
out in Commission Implementing Decision (EU) 2019/665.
ARSO/MOPE, 2024,
Information provided during the Eionet
review of the draft EEA country profile on waste management
(
21
)
for Slovenia, Slovenian Environment Agency and of Ministry of
the Environment, Climate and Energy.
ibid.
2025 Environmental Implementation Review
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Slovenia 10
2021 (ARSO/MOPE, 2024).
For steel and aluminium data are only
available from 2020 onwards.
Source:
Eurostat,
2024, ‘Packaging waste by waste management
operations’, env_waspac, last updated 23
October 2024, accessed
28 October
2024,
https://ec.europa.eu/eurostat/databrowser/view/ENV_WASPAC__cus
tom_842634/default/table?lang=en.
T
he overall packaging waste recycling rate is mainly
driven by paper and cardboard packaging waste, as this
fraction constitutes the largest share of all packaging
waste generated. In 2021 the packaging waste recycling
rate decreased below the 2025 target, which can mainly
be attributed to a change in data collection method and
improvements in data quality. According to data for
2022, Slovenia reported recycling rates above the 2025
recycling targets for all packaging materials except paper
and cardboard and total packaging waste.
Policies in place to encourage waste prevention
The national waste management plan of Slovenia was
adopted in 2022 (
22
). The national waste prevention
programme (NWPP) for 2022 and onwards is integrated
in the national waste management plan and will be
reviewed every fourth year (
23
). In this programme, the
measures are assessed annually against the 2020–2035
goals. An analysis of data on waste management for
reference year 2021 was carried out, and compliance
with the waste management plan (2022) was assessed.
The analysis is not made public (
24
).
The NWPP highlights several objectives connected to
waste prevention, such as reducing material
consumption, creating closed material loops, supporting
the usage of less resources and reusing materials and
products. The priority waste streams for prevention are
construction and demolition waste, food waste,
household and municipal waste, waste electrical and
electronic equipment, bulky waste, waste textiles and
waste lightweight plastic carrier bags. The programme
refers to the quantitative targets set at the EU level and
does not establish additional national targets. No
financial budget for waste prevention measures is
mentioned in the NWPP.
Besides the NWPP, the Ministry of Agriculture, Forestry
and Food has adopted a strategy to reduce food losses
and food waste in the food supply chain. In 2015, a pilot
project was implemented with the aim of monitoring and
analysing data on food waste, focusing on individual
waste streams and identifying the proportion of food
waste in municipal waste, including information on home
composting. At present, initiatives focus on five areas:
primary production, processing and manufacturing,
retail and other distribution of food, restaurants and
food services, and households. The country is focusing on
education and awareness campaigns, promoting the use
of local agricultural products to reduce transportation-
related waste, and supporting sustainable, short food
supply chains (
25
).
Policies to encourage separate collection and recycling
A high share of the population is covered by a high-
convenience collection service for paper and cardboard,
metals, plastics, glass and bio-waste. For these fractions,
door-to-door collection is the dominant system,
complemented by low-density bring points and civic
amenity sites. Packaging waste is mainly collected
through door-to-door commingled collection. Glass
packaging is mainly collected through low-density bring
points. Bio-waste (food and green garden waste
together) is home composted and/or collected through
door-to-door separate collection, providing a convenient
system for citizens. Textiles are collected at low-density
bring points and civic amenity sites. The separate
collection of all fractions is also mandatory for non-
households in Slovenia (
26
).
Separating waste at source is supported through a fully
rolled-out pay-as-you-throw system, covering 100 % of
the population. The system is mostly based on waste
container volume and the frequency of collection (
27
).
The Slovenian extended producer responsibility system
covers packaging waste from both household and non-
household sources for all packaging materials. However,
there is no advanced fee modulation in place, that is, fee
modulation within the broad material categories such as
higher fees for difficult-to-recycle types of plastic or
(
22
)
(
23
)
(
24
)
(
25
)
Government of the Republic of Slovenia, 2022, PROGRAM
RAVNANJA Z ODPADKI in PROGRAM PREPREČEVANJA
ODPADKOV REPUBLIKE SLOVENIJE (2022)
Waste Prevention Country Profile
–
Slovenia,
EEA
assessment of
15 March 2024.
ARSO/MOPE, 2024. Information provided during the Eionet
review of the draft EEA country profile on waste management
for Slovenia by the Slovenian Environment Agency and the
Ministry of the Environment, Climate and Energy.
Food Waste, Slovenia, 2016
(
26
)
(
27
)
European Environment Agency,
Early warning assessment
related to the 2025 targets for municipal and packaging waste
–
Slovenia,
Copenhagen,
2022,
https://www.eea.europa.eu/publications/many-eu-member-
states/slovenia/view.
Technical note accompanying the EEA briefing ‘Economic
instruments and separate collection
–
key instruments to
increase recycling’ —
European Environment Agency, File
(https://www.eea.europa.eu/publications/economic-
instruments-and-separate-collection/technical-note-
accompanying-the-eea/view) accessed 18 January 2024.
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combinations of materials (
28
). Slovenia has a packaging
tax that is based on the environmental burden unit as
defined in the regulation on an environmental levy on
environmental pollution from packaging waste (
29
).
There is a voluntary deposit return system covering only
reusable packaging (
30
). However, the introduction of a
mandatory deposit return system for packaging could
boost reuse and further increase the capture of
recyclable waste (
31
).
Policies to discourage landfilling or incineration
Slovenia has a landfill tax of EUR 11/tonne of landfilled
non-hazardous waste. The landfill tax is low compared
with other Member States. However, the landfill rate is
already very low. A landfill ban for biodegradable waste
was introduced in 2011. There is no tax on incineration
of municipal waste and there is no plan to implement
such a tax in the future (
32
).
The Commission’s 2022 Environmental Implementation
Review (EIR) recommended that Slovenia (i) Introduce
new policies, including economic instruments, to further
implement the waste hierarchy (i.e. promote prevention,
and make reuse and recycling more economically
attractive) and/or implement the policies which are
already in place; (ii) ensure that a waste management
plan in line with the revised Waste Framework Directive
is in place; (iii) close and rehabilitate, as quickly as
possible, the remaining illegal landfills to avoid charges
from infringement procedures.
Slovenia has made some progress on all three actions,
but further progress is required as regards the first
recommendation. As regards the third recommendation,
while there is currently still one open infringement case
concerning illegal landfills, the European Court of Justice
has delivered its ruling (
33
).
2025 priority actions
•
Invest in waste prevention measures to reduce the
total amount of waste generated, which has
increased over the last 12 years.
Increase the collection and recycling rate of waste
electronic and electric equipment (WEEE).
Introduce the deposit and return system(-s) (DRS), as
mandated by the new Packaging and Packaging
Waste Regulation, to capture more recyclable
materials and improve the quality of recyclates.
Ensure the achievement of the 2025 waste targets,
following the recommendations made by the
Commission in the early warning reports where
applicable.
•
•
•
(
28
)
(
29
)
(
30
)
Slovenia-Early Warning Assessment Related to the 2025 Targets
for Municipal and Packaging Waste, File, European Environment
Agency (EEA) (https://www.eea.europa.eu/publications/many-
eu-member-states/slovenia/view) accessed 7 March 2024..
Regulation on an environmental levy on environmental pollution
from packaging waste Official Gazette of the Republic of
Slovenia, Nos. 32/06, 65/06, 78/08, 19/10, 68/17, 82/18 and
44/22
–
ZVO-2, (https://pisrs.si/pregledPredpisa?id=URED3967)
accessed 9 November 2024.
Slovenia
–
Early Warning Assessment related to the 2025 Targets
for Municipal and Packaging Waste, File, European Environment
Agency (EEA)
(
31
)
(
32
)
(
33
)
Slovenia, 2025 EU waste recycling targets
–
State of play,
Publications
Office
of
the
European
Union
(https://data.europa.eu/doi/10.2779/51239)
accessed
12
March 2024.
ibid.
https://curia.europa.eu/jcms/upload/docs/application/pdf/202
5-05/cp250059en.pdf
.
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2. Biodiversity and natural capital
Global and EU biodiversity frameworks
Biological diversity and healthy ecosystems are critical
for our societies, underpin our economies and well-being
and are essential for climate change adaptation and
mitigation. The Kunming–Montreal global biodiversity
framework (GBF), adopted in December 2022, sets
comprehensive and measurable targets to tackle
biodiversity loss by 2030. To implement this global
framework and integrate biodiversity considerations into
national decision-making, the EU
–
as well as all Member
States
–
had to submit national biodiversity strategies
and action plans (NBSAPs), or to communicate national
targets aligned with the global targets, by the end of
2024. The EU biodiversity strategy for 2030 (BDS) aims to
put EU biodiversity on a path to recovery by 2030. It sets
quantified targets intended to protect and restore nature
and manage ecosystems in a sustainable manner, as well
as measures to enable implementation and
commitments to support global biodiversity. A BDS
actions tracker (
34
) and a dashboard of indicators (
35
)
provide information on implementation progress. The
recently adopted EU Nature Restoration Regulation
(
36
)
is
the first EU-wide, comprehensive law of its kind and a key
instrument for the EU to deliver on the global
biodiversity targets for 2030. It lays down an overarching
objective at the EU level to put in place effective
restoration measures on 20 % of EU land and sea by 2030
and for all ecosystems in need of restoration by 2050. To
achieve this, it sets binding targets for Member States to
restore and maintain ecosystems, as well as an effective
implementation framework based on national
restoration plans.
The BDS is the main instrument used by the EU to deliver
on its obligation under the GBF. The Commission has
submitted to the Convention on Biological Diversity
(CBD) its report on GBF-aligned EU targets that stem
from the BDS and from other policy instruments under
the European Green Deal.
Member States’ national biodiversity strategies and
action plans (NBSAPs) need to provide coherent
frameworks for national delivery on the global and EU
2030 biodiversity targets. In line with the global
obligations, NBSAPs should also include a biodiversity
financing plan and a capacity-building plan, based on
needs assessments, as well as an overview of the
national indicators used to measure progress.
Slovenia has submitted to the CBD its 2020–2030
national environmental action programme (NEAP),
adopted in March 2020. The programme defines
guidelines, goals, tasks and measures in different areas,
including biodiversity conservation and the protection of
valuable natural features as well as guidelines and
measures
for
compliance
with
international
environmental commitments. Slovenia has also
uploaded the overall national goals into the CBD,
indicating links to the global biodiversity targets or their
elements.
The NBSAP is integrated into a 10-year NEAP (2020–
2030) adopted by the Slovenian Parliament in March
2020 (
37
), and it reflects the commitments and actions of
the EU biodiversity strategy.
The EU aims to allocate to biodiversity objectives at least
7.5 % of annual spending under the EU budget in 2024,
rising to 10 % in 2026 and 2027.
For additional details on biodiversity financing and
investments for Slovenia, see Chapter 5.
Nature protection and restoration
–
Natura
2000
Natura 2000 (
38
), the largest coordinated network of
protected areas in the world, is key to the achievement
of the objectives set out in the Birds and Habitats
Directives. These objectives are to ensure the long-term
(
37
)
National Assembly of the Republic of Slovenia, Resolution on the
national environmental action programme 2020–2030
(ReNPVO20-30),
https://www.cbd.int/doc/world/si/si-nbsap-
v2-en.pdf,
Chapter 10.
Natura 2000 comprises sites of community importance (SCIs),
designated pursuant to the Habitats Directive, as well as special
protection areas (SPAs), classified pursuant to the Birds
Directive. Numbers of protected areas in Figure 9 do not add up
to the total of SCIs plus SPAs, because some SCIs and SPAs
overlap. An SAC is an SCI designated by a Member State.
(
34
)
(
35
)
(
36
)
EU
Biodiversity
Strategy
Actions
Tracker
(https://dopa.jrc.ec.europa.eu/kcbd/actions-tracker/).
EU
Biodiversity
Strategy
Dashboard
(https://dopa.jrc.ec.europa.eu/kcbd/EUBDS2030-
dashboard/?version=1).
Regulation (EU) 2024/1991 of the European Parliament and of
the Council of 24 June 2024 on nature restoration and amending
Regulation (EU) 2022/869 (OJ L, 2024/1991, 29.7.2024),
http://data.europa.eu/eli/reg/2024/1991/oj;
see also the
Commission
web
page
on
the
law
(https://environment.ec.europa.eu/topics/nature-and-
biodiversity/nature-restoration-law_en).
(
38
)
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protection, conservation and survival of Europe’s most
valuable and threatened species and habitats and the
ecosystems they underpin. Key milestones towards
meeting the objectives of the Birds and Habitats
Directives are (i) the setting up of a complete and
coherent Natura 2000 network; (ii) the designation of
sites of community importance (SCIs) as special areas of
conservation (SACs) (
39
); and (iii) effective management
of all Natura 2000 sites through the setting of site-
specific conservation objectives and measures.
Setting up a complete and coherent network of Natura
2000 sites
The setting up of a complete and coherent network of
Natura 2000 sites is a cornerstone of the EU’s
international commitments, under the BDS and GBF, to
legally protect a minimum of 30 % of its land area and
30 % of its sea area.
Meeting these commitments requires the full
implementation of Article 3 of the Habitats Directive. The
Natura 2000 network should represent a complete and
coherent ecological network composed of sites hosting
natural habitat types and species of community interest.
The Natura 2000 network enables the natural habitat
types and the species’ habitats concerned to be
maintained or, where appropriate, restored to a
favourable conservation status in their natural range.
Slovenia hosts 60 habitat types (
40
) and 202 species (
41
)
covered by the Habitats Directive. The country also hosts
populations of 76 bird taxa listed in the Birds Directive
Annex I (
42
).
In 2023, Slovenia had the largest coverage by Natura
2000 in the EU-27, with 37.9 % of the national land area
of Slovenia covered (EU coverage 18.6 %). SPAs classified
under the Birds Directive were covering 25 % (EU
coverage 12.8 %) and SCIs under the Habitats Directive
were covering 32.7 % (EU coverage 14.3 %) of the
Slovenian territory. While the Natura 2000 network on
land can be considered complete, there is still a gap in
the classification of marine SPAs for the Mediterranean
shag in Slovenian marine waters, for which an
infringement procedure has been ongoing since 2021. In
the absence of concrete action by the Slovenian
authorities, the Commission may decide to take the
infringement case further.
Taking into account both Natura 2000 and other
nationally designated protected areas, Slovenia legally
protects 40.5 % of its terrestrial areas (EU-27 coverage
26.1 %) and 5 % of its marine areas (EU-27 coverage
12.3 %) (
43
).
Figure 9: Natura 2000 terrestrial protected area
coverage per Member State (%), 2023
Source:
European Environment Agency (EEA), ‘Natura 2000 Barometer’,
2023 data, accessed March 2025,
https://www.eea.europa.eu/data-
and-maps/dashboards/natura-2000-barometer.
Designating special areas of conservation and setting
site-specific conservation objectives and measures
In order to ensure that SCIs contribute to the objectives
of the Habitats Directive, Member States must designate
them as SACs, setting site-specific conservation
objectives based on the ecological needs of the species
and habitats present on the sites. The site-specific
conservation objectives must be defined in terms of
attributes and targets that cover the properties of the
feature of interest that are necessary to describe its
condition as either favourable or unfavourable. These
(
39
)
(
40
)
(
41
)
SCIs are designated pursuant to the Habitats Directive, whereas
SPAs are designated pursuant to the Birds Directive. Figures of
coverage do not add up because some SCIs and SPAs overlap.
European Environment Agency (EEA), ‘Number of habitats and
species per Member State’, Article
17 dashboard, Annex I total,
19 December
2019,
https://www.eea.europa.eu/themes/biodiversity/state-of-
nature-in-the-eu/article-17-national-summary-
dashboards/general-information-on-habitats-and-species.
EEA, ‘Number of habitats and species per Member State’,
Article 17
dashboard,
19 December
2019,
https://www.eea.europa.eu/themes/biodiversity/state-of-
nature-in-the-eu/article-17-national-summary-
dashboards/general-information-on-habitats-and-species.
(
42
)
(
43
)
EEA, ‘Number of bird species/populations per Member State’,
Article 12 dashboard, Annex I total, last updated 11 May 2023,
https://www.eea.europa.eu/themes/biodiversity/state-of-
nature-in-the-eu/article-12-national-summary-
dashboards/general-information-on-bird-species-populations.
This counting only takes into account birds taxa for which
information was requested.
EEA,
‘Protected areas’, env_bio4,
terrestrial protected area
percentage for 2021 and marine protected area percentage for
2019,
March
2022,
https://ec.europa.eu/eurostat/databrowser/view/env_bio4/de
fault/table?lang=en.
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objectives must address the key pressures and threats
present on the site. Article 6 of the Habitats Directive
requires Member States to establish and implement
conservation measures for the realisation of the
objectives of the site.
The six-year deadline set by the Habitats Directive to
designate an SCI as an SAC and to establish appropriate
conservation objectives and measures has expired for all
but a few sites in Slovenia.
Although all SCIs have been designated as SACs, and
conservation objectives and measures have been
established, some conservation measures are not yet
sufficiently fit for purpose to achieve the objectives of
the SACs. The implementation of the necessary
conservation measures has been delayed for many sites.
Slovenia is currently addressing some of these
shortcomings within the LIFE integrated project for
enhanced management of Natura 2000 in Slovenia.
Moreover, Slovenia seeks to improve implementation
through better integration of conservation measures
into the common agricultural policy (CAP) strategic plan,
better implementation of cohesion projects and funding
from national sources.
Slovenia still has to improve the quality of some
conservation objectives and of the implementation of
certain conservation measures for the designated sites.
According to the European Environment Agency (EEA),
based on reporting required under Article 17 of the
Habitats Directive, a quarter of species in the EU were of
good conservation status as of 2018 (
44
).
One of the primary objectives of the Habitats Directive is
the maintenance of or restoration to favourable
conservation status of all species of community interest.
Moreover, the Birds Directive also aims to ensure that all
wild birds in the EU enjoy a secure status. In order to
achieve these objectives, it will be necessary to address
key pressures and threats. The Birds Directive and the
Habitats Directive lay down a framework of species
protection rules and rules on the conservation of habitats
and species in order to combat these threats.
Under Article 17 of the Habitats Directive, Member
States are required to report on the conservation status
of habitats and species every six years. The current
reporting cycle, covering the years 2019 to 2024, is due
for submission in July 2025.
Figure 10: Assessments of conservation status for
habitats for the 2007–2012 and 2013–2018 reporting
periods
2025 priority actions
•
Finalise the establishment of site-specific
conservation objectives and measures for all Natura
2000 sites (including by adopting their management
plans) and ensure their effective implementation.
Ensure the effective implementation of Natura 2000
management plans and sufficient administrative
capacity and financing both for Natura 2000 and the
implementation of the Nature Restoration
Regulation. Ensure implementation of Prioritised
Actions Framework 2021-2027 (PAFs).
•
Recovery of species
One objective set by the BDS is that, by 2030, there
should be no further deterioration in conservation trends
or the status of any protected species. The BDS also
states that Member States should ensure that at least
30 % of species not currently in favourable conservation
status achieve that status or show progress towards
doing so (e.g. by exhibiting positive population dynamics
or stable or increasing range and habitat size), by 2030.
NB: The values shown for 2007–2012 and 2013–2018 are not
necessarily directly comparable because changes in area conservation
status in a Member State may result from changes to methods or use
of better data, rather than reflecting genuine changes.
Source:
EEA, ‘Conservation
status and trends of habitats and species’,
19 December
2019,
accessed
December
2021,
https://www.eea.europa.eu/themes/biodiversity/state-of-nature-in-
the-eu/article-17-national-summary-dashboards/conservation-status-
and-trends.
(
44
)
EEA (2020),
State of Nature in the EU: Results from reporting
under the Nature Directives 2013–2018,
Publications Office of
the
European
Union,
Luxembourg,
2020,
https://www.eea.europa.eu/publications/state-of-nature-in-
the-eu-2020.
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Figure 11: Assessments of conservation status for
species for the 2007–2012 and 2013–2018 reporting
periods
necessary measures to fully comply
requirements of the Habitats Directive.
with
the
To make significant progress in restoring and maintaining
the favourable conservation status of protected habitats
and species, Slovenia should focus its implementation of
conservation and restoration measures on the habitats
and species in bad conservation status and/or declining
trends, such as (i) grasslands and associated species, by
addressing agricultural pressures; (ii) forests and
associated species, by addressing forestry practices; and
(iii) freshwater habitats and associated species, by
addressing changes in the water system.
Little progress has been made since the 2022 EIR.
2025 priority actions
•
NB: The values shown for 2007–2012 and 2013–2018 are not
necessarily directly comparable because changes in area conservation
status in a Member State may result from changes to methods or use
of better data, rather than reflecting genuine changes.
Source:
EEA, ‘Conservation status and trends of habitats and species’,
19 December
2019,
accessed
December
2021,
https://www.eea.europa.eu/themes/biodiversity/state-of-nature-in-
the-eu/article-17-national-summary-dashboards/conservation-status-
and-trends.
Strengthen the integration of biodiversity actions
into other policies, e.g. energy, agriculture, fisheries,
forestry, urban and infrastructure planning and
sustainable tourism, and promote communication
between stakeholders.
Reinforce action for habitats and species in
unfavourable conservation status, for example
through
restoration
measures,
increased
connectivity, better policy coordination and
integration, and increased funding.
•
According to the report submitted by Slovenia on the
conservation status of habitats and species covered by
Article 17 of the Habitats Directive for 2013–2018 (
45
),
the share of assessments for habitats in good
conservation status in 2018 was 38.2 %. The share of
assessments for protected species in good conservation
status in 2018 was 29.22 %, On birds, 82 % of the
breeding species showed short-term increases or stable
population trends (for key wintering species this figure
was 40 %).
The habitat groups that have been faring particularly
badly are forests, bogs, mires and fens, grasslands and
freshwater habitats. On species, groups that have been
faring particularly badly are mammals, amphibians and
arthropods, while notably there are still knowledge gaps
on the conservation status of species.
The main pressures are from agriculture, urban
development, changes in water regime, forestry and
other extraction of resources.
Slovenia has been under an infringement proceeding
since July 2019 for its failure to address unsustainable
agricultural practices in Natura 2000 sites, which is
resulting in the deterioration of several bird species and
a butterfly species. It is essential that Slovenia takes the
Recovery of ecosystems
Agricultural ecosystems
The BDS works alongside the CAP to support the
transition to sustainable agriculture.
The strategy has set five common agriculture-related
targets for 2030, namely to:
—
reduce by 50 % the overall use of
–
and risk from
–
chemical pesticides;
—
reduce by 50 % the use of more hazardous
pesticides;
—
reduce by 50 % losses of nutrients from fertilisers
(which will result in a 20 % reduction in the use of
fertilisers) while ensuring that there is no
deterioration of soil fertility;
—
restore at least 10 % of agricultural area to have
high-diversity landscape features; and
—
increase the area under organic farming to at least
25 %.
The Vision for agriculture and food, adopted by the
European Commission in February 2025, sets a roadmap
nature-in-the-eu/article-17-national-summary-
dashboards/conservation-status-and-trends.
(
45
)
EEA,
‘Conservation
status and trends of habitats and species’,
19 December
2019,
accessed
December
2021,
https://www.eea.europa.eu/themes/biodiversity/state-of-
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to an agri-food system that is attractive, competitive,
sustainable and fair for current and future generations.
To ensure a sustainable future for EU agriculture, it is
crucial that these four priority areas are pursued
together, and that public and private support are
adequately targeted toward this objective(
46
).
The CAP and national CAP strategic plans (SPs) are key
instruments to facilitate and strengthen the efforts of
European farmers to protect biodiversity and the
environment at large. The Commission approved
Member States’ CAP SPs in 2022 for the 2023–2027
programming period. CAP is the largest source of funding
for the implementation of EU environment policy, and
this is particularly true for biodiversity. SPs continue to
support the protection of soil, water, air quality and
biodiversity.
While certain CAP result indicators focus on
interventions favouring sustainable agriculture practices
that regenerate ecosystems, the impact of these
measures is difficult to assess. The uptake of the eco-
schemes is voluntary for farmers.
The utilised agricultural area in Slovenia increased from
479 650 ha in 2012 to 484 060 ha in 2020 and decreased
to 479 430 ha in 2022 (
47
).
Landscape features are fragments of non-productive and
typically
–
but not exclusively
–
semi-natural vegetation
present in or adjacent to agricultural land. They provide
ecosystem services and support for biodiversity. The
indicator
‘share
of agricultural land covered with
landscape features’ is the ratio between the area
covered by landscape features and the area covered by
non-productive agricultural land. Based on the Land
Use/Cover Area Frame Survey landscape features
estimates, the share of agricultural land covered by non-
productive landscape features in Slovenia is 5.9 %,
slightly above the EU average. At the EU level, landscape
features cover 5.6 % of agricultural land.
In 2024, the CAP basic regulations were amended (
48
)
regarding, inter alia, the standards for good agricultural
and environmental condition of land. These changes
(
46
)
European Commission, Vision for Agriculture and Food,
https://agriculture.ec.europa.eu/overview-vision-agriculture-
food/vision-agriculture-and-food_en
Eurostat,
‘Utilised agricultural area by categories’, tag00025,
accessed
5 December
2024,
https://ec.europa.eu/eurostat/databrowser/view/tag00025/de
fault/table?lang=en.
Regulation (EU) 2024/1468 of the European Parliament and of
the Council of 14 May 2024 amending Regulations (EU)
2021/2115 and (EU) 2021/2116 as regards good agricultural and
environmental condition standards, schemes for climate,
environment and animal welfare, amendment of the CAP
strategic plans, review of the CAP strategic plans and exemptions
removed the obligation for farmers benefiting from CAP
area-related support to have a minimum share of 3–4 %
of non-productive areas or landscape features on the
farm. The amended regulations set out an obligation for
Member States to establish and provide support for eco-
schemes covering practices for the maintenance of non-
productive areas, such as land lying fallow, and for the
establishment of new landscape features on arable land.
Slovenia has therefore introduced a new eco-scheme,
the non-productive areas and elements scheme.
The recently adopted Nature Restoration Regulation (
49
)
focuses on the restoration of agricultural ecosystems and
requires Member States to put in place measures that
aim to achieve an increasing trend at the national level in
at least two out of three indicators for agricultural
ecosystems (
50
). One of these indicators is the
‘share
of
agricultural land with high-diversity landscape features’.
Organic farming practices are highly beneficial to
biodiversity. As shown in Figure 12, it is estimated that
11.10 % of Slovenia’s utilised agricultural land area is
used for organic farming. This is slightly above the EU
average of 10.50 % (
51
). Slovenia is contributing above
average to the EU’s goal of having 25 % of agricultural
land under organic farming by 2030.
Figure 12: Share of total utilised agricultural area
occupied by organic farming per Member State (%),
2022
(
49
)
(
47
)
(
50
)
(
48
)
(
51
)
from controls and penalties (OJ L, 2024/1468, 24.5.2024),
http://data.europa.eu/eli/reg/2024/1468/oj.
Regulation (EU) 2024/1991 of the European Parliament and of
the Council of 24 June 2024 on nature restoration and amending
Regulation (EU) 2022/869 (OJ L, 2024/1991, 29.7.2024)
http://data.europa.eu/eli/reg/2024/1991/oj.
The three indicators are
‘grassland butterfly index’; ‘stock of
organic carbon in cropland mineral soils’ and ‘share of
agricultural land with high-diversity
landscape features’.
European Commission, ‘Agriculture biologique au sein de l’union
européenne’,
https://agriculture.ec.europa.eu/document/download/c67458e
d-ec50-4762-ae68-341763ab93c2_fr?filename=factsheet-
organic-farning_fr.pdf&prefLang=en.
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Source:
Eurostat, ‘Area under organic farming’, sdg_02_40, accessed
5 December
2024,
https://ec.europa.eu/eurostat/databrowser/view/sdg_02_40/default/
table?lang=en.
2025 priority action
•
Implement eco-schemes and agri-environmental
measures and practices to address the
environmental needs of Slovenia.
issues related to land degradation are soil erosion, soil
compaction, loss of soil organic carbon, soil
contamination, soil salinisation and the presence in soil
of nitrogen and phosphorus in excess. The impact
assessment accompanying the proposal, which builds on
the data available in the EU Soil Observatory, points to
the following soil degradation issues in Slovenia (
53
).
The greatest contributor to Slovenia’s unhealthy soils is
high mercury concentrations exceeding 200 µg/kg, which
affect 19 % of the land. 8 % of the national territory has
a high or very high susceptibility to topsoil compaction.
Both contributors to unhealthy soils are mostly found in
the north-west of the country.
In the 2020–2030 NEAP, Slovenia sets guidelines and
measures to upgrade the protection and sustainable
management of soil and to maintain its ecosystem
services (
54
).
Grasslands
Grasslands are among the most diverse ecosystems in
the EU; they can contain as many as 80 different plant
species per square metre and are home to a large variety
of animals, ranging from small insects, birds and rodents
to large herbivores. Grasslands are essential for
agriculture and livestock herding. Natural grasslands also
play an important role in storing carbon. However,
changes in agricultural practices and land uses have
caused grasslands to disappear at an alarming rate,
making them one of Europe’s most threatened
ecosystems.
In Slovenia there are extensive areas of semi-natural
grasslands, including several habitat types listed in
Annex I of the Habitats Directive. Grasslands in Slovenia
are also among the most threatened habitats, mainly due
to changes in agricultural practices, such as
abandonment and intensification. Effective conservation
of these habitats and their biodiversity requires active
management, such as periodic grazing or mowing, to
maintain their ecological value and prevent degradation.
According to assessments of the latest reporting period
(2013–2018) under Article 17, the conservation status of
grassland habitats in Slovenia is predominantly ranked as
‘unfavourable –
bad’ (
55
). The primary pressures and
Soil ecosystems
Soil is an essential, finite and extremely fragile resource.
Its increasing degradation poses a threat to EU food
security and climate resilience, adaptation and
mitigation.
The EU soil strategy, adopted in November 2021, aims to
support soil protection, sustainable soil management
and the restoration of degraded soils to achieve the
Green Deal objectives as well as land degradation
neutrality by 2030.
This entails:
—
preventing further soil degradation;
—
making sustainable soil management the new
normal;
—
taking action for ecosystem restoration.
The proposed directive on soil monitoring and
resilience (
52
) aims to introduce the first comprehensive
legislation on the protection of all soils in the EU. Should
the Directive be adopted, Member States will have to
transpose it into national legislation and implement it,
starting with putting in place the governance systems
and a sound monitoring framework building on existing
national soil monitoring frameworks. The objective of
the proposed directive is to provide better and more
comparable soil health data with the view of attaining
healthy soils by 2050.
Degradation of soil ecosystems encompasses several
aspects. The proposed directive requires Member States
to assess soil health according to a set of common
indicators and to define the necessary regeneration
measures. The area of soil that is sealed is an important
factor in monitoring land-use change and represents an
important pressure on nature and biodiversity. Other soil
(
52
)
(
53
)
Proposal for a directive of the European Parliament and of the
Council on soil monitoring and resilience (Soil Monitoring Law),
COM(2023) 416
final
of
5 July
2023,
https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=celex:52023PC0416.
Commission staff working document
–
Impact assessment
report: Annexes
–
Accompanying the proposal for a directive of
the European Parliament and of the Council on soil monitoring
and resilience (Soil Monitoring Law), SWD(2023) 417 final of
5 July
2023,
https://environment.ec.europa.eu/system/files/2023-
(
54
)
(
55
)
07/IMPACT
ASSESSMENT
REPORT_ANNEXES_SWD_2023_417_part4.pdf.
National Assembly of the Republic of Slovenia, Resolution on the
national environmental action programme 2020–2030
(ReNPVO20-30),
https://www.cbd.int/doc/world/si/si-nbsap-
v2-en.pdf,
Table 2.
Article 17 web tool,
‘Habitat assessments at Member State
level’,
nature-
art17.eionet.europa.eu/article17/habitat/report/?period=5&gr
oup=Grasslands&country=SI&region=.
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threats for Slovenian grasslands include agriculture,
development and natural processes.
Wetlands/peatlands
Wetlands act as water sources and purifiers; they are the
planet’s greatest natural carbon stores and they are
crucial to agriculture and fisheries. Peatlands are a
special type of wetlands dominated by peat-forming
plants such as
Sphagnum
mosses. Nearly all peatlands in
the EU are habitat types listed in Annex I to the Habitats
Directive. Drained peatlands under intensive agricultural
use constitute only 3 % of the EU’s utilised agricultural
area. At the same time, they are responsible for 25 % of
the greenhouse gas (GHG) emissions from the EU’s
agricultural sector. Restoring peatlands brings multiple
benefits, as peatlands improve water retention and
quality, store carbon, reduce GHG emissions and
increase biodiversity.
In Slovenia, wetlands and peatlands are represented by
several habitat types listed in Annex I of the Habitats
Directive. The overall assessment of the latest reporting
period (2013–2018) under Article 17 shows that the
conservation status of these habitats is generally
unfavourable (
56
). The main pressures on and threats to
Slovenian wetland and peatland habitats include
agricultural activities, forestry, resource extraction,
human-induced changes in water regimes, mixed-source
pollution, natural processes, energy production and
infrastructure development (e.g. transport system
expansion), but also climate change and invasive
species()
57
.
These pressures reflect the broader challenges in
managing and protecting Slovenia’s peatland and
wetland
ecosystems,
which
require
focused
conservation actions to mitigate habitat loss and
degradation.
Forest ecosystems
Forests are important carbon sinks, and conserving them
is vital if the EU is to achieve climate neutrality by 2050.
The EU forest strategy for 2030, adopted in July 2021, is
a plan of actions to promote the many services that
forests provide. Its key objective is to ensure healthy,
diverse and resilient EU forests that contribute
significantly to the achievement of the EU’s biodiversity
and climate ambitions. About 27 % of the forest area in
the EU is covered by habitat types listed in Annex I to the
Habitats Directive. Moreover, forests host several
species protected under the Birds and Habitats
Directives, including those for which there is a
requirement to designate Natura 2000 sites and to
protect breeding sites and resting places.
Several Commission guidelines on forestry management
were published in 2023. They covered biodiversity-
friendly afforestation, reforestation and tree planting;
closer-to-nature forest management; and defining,
mapping, monitoring and strictly protecting primary and
old-growth forests. Further guidance on payment
schemes for ecosystems services has also been
published.
In 2023, the Commission proposed a new forest
monitoring law (
58
) that aims to create a comprehensive
forest knowledge base, address information gaps and
enable a better response to growing pressures on
forests.
Assessments show that, of the 27 % of EU forest area
protected under the Habitats Directive, less than 15 % is
of favourable conservation status (
59
). The share of
forested areas in the EU with a bad conservation status
increased from 27 % in 2015 to 31 % in 2018.
In Slovenia, forests covered 61.5 % of its territory in 2020
(
60
) and more than 75 % of the assessments reveal a bad
to poor status (
61
). A total of 34 000 ha in Slovenia is
covered by primary forests (
62
).
(
56
)
Article 17 web tool,
‘Habitat assessments at Member
State
level’,
nature-
art17.eionet.europa.eu/article17/habitat/report/?period=5&gr
oup=Bogs%2C+mires+%26+fens&country=SI&region=.
(
57
)
Resolucija o Nacionalnem programu varstva okolja za obdobje
2020–2030 (ReNPVO20–30) (PISRS)
(
58
)
Proposal for a Regulation of the European Parliament and of the
Council on a monitoring framework for resilient European
forests,
COM(2023)728,
22
November
2023,
https://ec.europa.eu/transparency/documents-
register/detail?ref=COM(2023)728&lang=en
59
( ) EEA,
State of Nature in the EU: Results from reporting under the
Nature Directives 2013–2018,
Publications Office of the
European
Union,
Luxembourg,
2020,
https://www.eea.europa.eu/publications/state-of-nature-in-
the-eu-2020.
(
60
)
(
61
)
(
62
)
EEA,
forest information system for Europe, ‘Countries –
FISE
country factsheets’, forest information system for Europe
website,
https://forest.eea.europa.eu/countries.
EEA, ‘Conservation status and trends of habitats and species’,
19 December
2019,
accessed
December
2021,
https://www.eea.europa.eu/themes/biodiversity/state-of-
nature-in-the-eu/article-17-national-summary-
dashboards/conservation-status-and-trends;
Article 17 web
tool, ‘Habitat assessments at Member State level’,
nature-
art17.eionet.europa.eu/article17/habitat/report/?period=5&gr
oup=Forests&country=SI&region=.
European Commission: Joint Research Centre,
Mapping and
assessment of primary and old-growth forests in Europe,
Publications Office of the European Union, Luxembourg,
https://publications.jrc.ec.europa.eu/repository/handle/JRC124
671,
p. 13.
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Figure 13: Conservation status of forests protected
under the Habitats Directive per Member State (% of
assessments), 2013–2018
marine waters and cooperate with other Member States
sharing the same marine region or subregion. These
marine strategies comprise different steps to be
developed and implemented over six-year cycles.
Since the 2022 EIR report, no additional data regarding
Member States’ set of GES characteristics for each
descriptor in the MSFD have become available.
Nevertheless, Member States have to report updates by
October 2024, and these will be assessed by the
Commission. In the context of this next round of
reporting, in accordance with the MSFD and the
Commission GES decision (
66
), Member States must
include as part of their set of GES characteristics any
threshold values for the descriptors in the MSFD that
may have been established in cooperation with other
Member States at the EU or regional level (
67
).
The Commission assessed the updated monitoring
programme reported by Member States in 2020 (
68
). At
that time their updates on the elements, features and
parameters identified monitoring gaps. The Commission
recommended that Member States should prioritise
work to address those gaps at all levels of
implementation of the MSFD.
Member States also reported their updated programmes
of measures, which are required under Article 13 of the
MSFD and must be updated every six years. The
Commission has assessed Member States’ programmes
of measures.
Source:
Commission staff working document
–
New EU forest strategy
for 2030, SWD(2021) 652 final of 16 July 2021, p. 24,
eur-
lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52021SC0652.
The EU Timber Regulation (EUTR) (
63
) prohibits the
placing on the EU market of illegally harvested timber.
According to the EUTR, Member States’ competent
authorities must conduct regular checks on operators
and traders and apply penalties for non-compliance.
With the amendment of Article 20 of the EUTR, reporting
every two years has been changed to annual reporting,
and covers the calendar year as of 2019.
On 29 June 2023, the Regulation on Deforestation-free
Products (EUDR) (
64
) entered into force (
65
). The
regulation seeks to guarantee that products in the EU
that are made using any of seven listed commodities
have no links to deforestation. The EUDR repeals the
EUTR.
Marine ecosystems
The Marine Strategy Framework Directive (MSFD)
requires Member States to achieve good environmental
status (GES) for their marine waters. To that end,
Member States must draw up marine strategies for their
(
63
)
(
64
)
(
65
)
(
66
)
Regulation (EU) No 995/2010 of the European Parliament and of
the Council of 20 October 2010 laying down the obligations of
operators who place timber and timber products on the market
(OJ L 295, 12.11.2010, p. 23),
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A32010R0995.
Regulation on Deforestation-free products - European
Commission.
The law will apply to large and medium-sized companies starting
on December 30, 2025, and to micro and small enterprises
starting on June 30, 2026.
Commission Decision (EU) 2017/848 of 17 May 2017 laying down
criteria and methodological standards on good environmental
status of marine waters and specifications and standardised
(
67
)
(
68
)
methods for monitoring and assessment, and repealing Decision
2010/477/EU (OJ L 125, 18.5.2017, p. 43),
https://eur-
lex.europa.eu/eli/dec/2017/848/oj/eng.
Commission Notice on the threshold values set under the MSFD
(Directive 2008/56/EC) and Commission Decision (EU) 2017/848
(C/2024/2078).
Communication from the Commission
–
Commission notice on
recommendations on the 2020 updated reports for Article 11 of
the Marine Strategy Framework Directive (2008/56/EC), C(2023)
2203
final
of
4 April
2023,
https://environment.ec.europa.eu/system/files/2023-
04/C_2023_2203_F1_COMMUNICATION_FROM_COMMISSION
_EN_V5_P1_2532109.PDF.
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Figure 14: Level of adequacy of Slovenia’s updated
programme of measures under Article 13 of the MSFD
(2022 reporting exercise)
2025 priority action
•
Report updates on the assessment of the state of
Slovenia’s
marine waters, its targets and its
determinations of GES (
69
), which are expected to
include any threshold values for the descriptors in
the MSFD that may have been established in
cooperation with other Member States at the EU or
regional level.
Prevention and management of invasive alien
species
Invasive alien species (IAS) are a major cause of
biodiversity loss in the EU. Besides inflicting direct and
indirect damage on nature and the economy, some IAS
also carry and spread infectious diseases, posing a threat
to humans and wildlife. Regulation (EU) No 1143/2014
(the IAS Regulation) aims to prevent, minimise and
mitigate the adverse impacts of IAS on biodiversity. It
focuses action on a list of IAS of EU concern (the
‘Union
list’), which is regularly updated (
70
).
The third update of the Union list (
71
) entered into force
on 2 August 2022. The fourth update is in preparation.
The IAS Regulation (
72
) currently lists 88 species subject
to restrictions on keeping, importing, selling, breeding,
growing and releasing into the environment. Member
States are required to take measures to (i) prevent the
introduction of IAS, (ii) ensure early detection and rapid
eradication of IAS and (iii) manage species that are
already widespread on their territory.
This aligns with target 6 of the GBF to reduce the
introduction of IAS by at least 50 % by 2030 and minimise
their impact.
Preventing the introduction and spread of IAS, and
managing them, including through eradication and
control, can result in a substantial cost saving. Studies
estimate that the total cost of IAS in Europe (damages
and management) amounted to EUR 116.61 billion
between 1960 and 2020 (
73
). More recent studies have
put this cost at USD 28 billion per year in the EU,
Source:
Technical assessment carried out by the European Commission,
pursuant to Article 16 of the MSFD, based on the data reported by the
Member State in January and March 2023.
Slovenia’s updated programme of measures revealed
gaps for most descriptors, while D6 and D10 were found
to be adequately covered.
For sea-floor integrity (D6), additional measures
effectively tackle physical loss and disturbance, while for
marine litter (D10), new measures target litter input from
various sources, although micro-litter is only partially
addressed.
Measures for underwater noise (D11) mostly arise from
regional or international organisations, without a clear
explanation of their binding status in Slovenia’s waters.
Moreover, no new measures were defined for non-
indigenous species (D2), commercial fish and shellfish
(D3) and contaminants in seafood (D9), leaving pressures
on these descriptors inadequately covered.
Slovenia has not yet ratified the Protocol for the
Protection of the Mediterranean Sea against Pollution
Resulting from the Exploration and Exploitation of the
Continental Shelf and the Seabed and its Subsoil
(Offshore Protocol to the Barcelona Convention).
(
69
)
(
70
)
(
71
)
In accordance with Article 17 of Directive 2008/56/EC.
Commission Implementing Regulation (EU) 2016/1141 of 13 July
2016 adopting a list of invasive alien species of Union concern
pursuant to Regulation (EU) No 1143/2014 of the European
Parliament and of the Council (OJ L 189, 14.7.2016, p. 4), as
amended by Commission Implementing Regulations (EU)
2017/1263, (EU) 2019/1262 and (EU) 2022/1203 (https://eur-
lex.europa.eu/legal-
content/EN/TXT/PDF/?uri=CELEX:02016R1141-
20220802&from=EN).
Commission Implementing Regulation (EU) 2022/1203 of 12 July
2022 amending Implementing Regulation (EU) 2016/1141 to
(
72
)
(
73
)
update the list of invasive alien species of Union concern (OJ
L 186, 13.7.2022, p. 10),
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A32022R1203.
Regulation (EU) No 1143/2014 of the European Parliament and
of the Council of 22 October 2014 on the prevention and
management of the introduction and spread of invasive alien
species (OJ L 317, 4.11.2014, p. 35).
Haubrock, P. J., Turbelin, A. J., Cuthbert, R.
N. et al., ‘Economic
costs of invasive alien species across Europe’,
NeoBiota,
Vol. 63,
2021, pp. 153–190.
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increasing to USD 148.2 billion by 2040 (
74
), and at
USD 423 billion annually at the global level (
75
).
The total number of IAS of Union concern in the country
is 21. This includes 15 species recorded in the previous
EIR (2021), 4 species that were present previously and
added to the list later under Commission Implementing
Regulation (EU) 2022/1203 and 2 newly detected
species.
Slovenia has not yet ratified the International Convention
for the Control and Management of Ships’ Ballast Water
and Sediments.
Figure 15: Number of invasive alien species of EU
concern, based on available georeferenced
information for Slovenia, 2024
2025 priority actions
•
Step up implementation of the IAS Regulation,
including with regard to enforcement and the
capacity of inspection authorities.
Ratify the International Convention for the Control
and Management of Ships’ Ballast Water and
Sediments of 2004 (BWM Convention).
•
Ecosystem assessment and accounting
The BDS calls on Member States to better integrate
biodiversity considerations into public and business
decision-making at all levels and to develop natural
capital accounting.
Similarly, target 14 of the GBF (
76
) aims to ensure the full
integration of biodiversity and its multiple values into
policy and planning and, as appropriate, national
accounting. This requires effective and coherent
biodiversity observation and reporting on ecosystem
condition in the EU (
77
).
The amended Regulation (EU) No 691/2011 on European
environmental economic accounts (
78
) introduces new
requirements for Member States to report on the
condition of ecosystems including urban ecosystems,
croplands, grasslands, forest and woodlands, coastal
beaches, dunes and wetlands. Data reported by the
Member States will feed into the second European
ecosystem assessment, due in 2027, and can also be used
to support policy decisions.
An ecosystem assessment is an analysis of the condition
of ecosystems and the pressures acting on them, as well
as the benefits that they provide to people, either
directly or indirectly through the economy.
An increasing number of platforms, networks and
communities of practice involve businesses in protecting
biodiversity, including the EU Business & Biodiversity
Platform (
79
). These platforms and communities are key
tools for promoting and facilitating natural capital
Publications Office of the European Union, Luxembourg, 2021,
https://op.europa.eu/en/publication-detail/-
/publication/81ff1498-b91d-11eb-8aca-
01aa75ed71a1/language-en.
Proposal for a regulation of the European Parliament and of the
Council amending Regulation (EU) No 691/2011 as regards
introducing new environmental economic accounts modules,
COM(2022) 329 final of 11 July 2022,
https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=COM:2022:329:FIN.
The EU Business & Biodiversity Platform (https://green-
business.ec.europa.eu/business-and-biodiversity_en)
aims to
promote the business case for biodiversity to businesses and
financial institutions through workshops, seminars, reports and
a cross-media communication strategy.
As required in the 2022 priority action, Slovenia has
taken appropriate measures to establish and implement
action plans to address the unintentional introduction
and spread of invasive aliens species in its territory and
marine waters, in line with Article 13 of the IAS
Regulation.
(
74
)
(
75
)
(
76
)
(
77
)
Henry, M., Leung, B., Cuthbert, R. N. et
al., ‘Unveiling the hidden
economic toll of biological invasions in the European Union’,
Environmental Sciences Europe,
Vol. 35, No 1, 2023, p. 43.
IPBES (Intergovernmental Science-Policy Platform on
Biodiversity and Ecosystem Services),
Summary for
Policymakers
–
Invasive alien species assessment,
Bonn, 2023,
https://www.ipbes.net/document-library-catalogue/summary-
policymakers-invasive-alien-species-assessment.
Decision 15/4 adopted by the Conference of the Parties to the
Convention on Biological Diversity: Kunming–Montreal global
biodiversity
framework
(https://www.cbd.int/doc/decisions/cop-15/cop-15-dec-04-
en.pdf).
European Commission: Joint Research Centre and EEA,
EU
Ecosystem Assessment
–
Summary for policymakers,
(
78
)
(
79
)
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assessments among businesses and financial services
providers.
Natural capital assessments help private businesses to
better understand both the negative and positive
impacts that they have on nature, and to appreciate how
nature contributes to their success. Such understanding
contributes to the implementation of the EU’s BDS.
In 2022, Slovenia received a priority action to continue to
support the mapping and assessment of ecosystems and
their services, and to support the development of
national business and biodiversity platforms.
There is still no Slovenian business and biodiversity
network member of the EU Business & Biodiversity
Platform. Slovenia has signed, but not yet ratified, the
Nagoya Protocol on Access to Genetic Resources and the
Fair and Equitable Sharing of Benefits Arising from their
Utilization to the Convention on Biological Diversity.
2025 priority actions
•
Ratify the Nagoya Protocol on Access to Genetic
Resources and the Fair and Equitable Sharing of
Benefits Arising from their Utilization to the
Convention on Biological Diversity.
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3. Zero pollution
Clean air
EU clean air policies and legislation have successfully
reduced emissions of key air pollutants and significantly
improved air quality, which is now moving towards the
levels recommended by the World Health Organization
(WHO). This has resulted in clear health benefits and
reduced adverse impacts on ecosystems and biodiversity.
However, to achieve the WHO-recommended levels, more
efforts are needed, including full compliance with EU
legislation. To guide these efforts, the EU zero pollution
action plan sets targets for 2030 relative to 2005. These
are to reduce the health impacts of air pollution by 55 %
and to reduce the EU ecosystems threatened by air
pollution by 25 %.
The EU has developed a comprehensive suite of air quality
policies (
80
). These set health-based EU air quality
standards (
81
) and stipulate Member States’ national
emission reduction commitments (
82
) for several air
pollutants.
Air quality in Slovenia is generally good, with some
exceptions.
The latest available annual estimates (for 2022) by the
EEA (
83
) for Slovenia attribute 1 300 deaths each year (or
13 300 years of life lost (YLL)) to fine particulate matter
(PM
2.5
) (
84
); 140 deaths each year (or 1 400 YLL) to nitrogen
dioxide (NO
2
) (
85
); and 340 deaths each year (or 3 600 YLL)
to ozone (
86
).
The emissions of several air pollutants have decreased
significantly in Slovenia since 2005, while GDP growth has
continued (see Figure 16). According to the inventories
submitted under Article 10(2) of the National Emission
Reduction Commitments Directive (NECD) (
87
) in 2024,
Slovenia has met its emission reduction commitments for
2020–2029 for the air pollutants nitrogen oxides (NO
x
),
non-methane volatile organic compounds (NMVOC),
sulphur dioxide (SO
2
), ammonia (NH
3
) and PM
2.5
.
According to the latest projections submitted under
Article 10(2) of the NECD, Slovenia is projected to meet its
emission reduction commitments for 2030 onwards for
NO
x
, NMVOC, SO
2
and NH
3
, but not for PM
2.5
.
Nevertheless, for NO
x
and PM
2.5
in 2020–2022 decreasing
trends slowed down or stopped in the road transport
sector.
Slovenia submitted its updated national air pollution
control programme (NAPCP) to the Commission on
27 May 2024.
Figure 16: Emission trends of main pollutants / GDP in
Slovenia (%), 2005–2022
200%
150%
100%
50%
0%
NH₃
PM2.5
PM
2.5
NMVOC
SO₂
NOₓ
GDP
Source:
EEA, ‘National air pollutant emissions data viewer 2005–2022’,
25 June 2024,
https://www.eea.europa.eu/en/topics/in-depth/air-
pollution/national-air-pollutant-emissions-data-viewer-2005-2022.
(
80
)
(
81
)
(
82
)
(
83
)
(
84
)
European Commission,
‘Air’, European Commission website,
https://environment.ec.europa.eu/topics/air_en.
European Commission,
‘EU air quality standards’, European
Commission
website,
https://environment.ec.europa.eu/topics/air/air-quality/eu-air-
quality-standards_en.
European Commission,
‘Reducing emissions of air pollutants’,
European
Commission
website,
https://environment.ec.europa.eu/topics/air/reducing-
emissions-air-pollutants_en.
EEA,
Harm to human health from air pollution in Europe: Burden of
disease 2024,
briefing No 21/2024, Copenhagen, 2024,
https://www.eea.europa.eu/en/analysis/publications/harm-to-
human-health-from-air-pollution-2024.
Particulate matter (PM) is a mixture of aerosol particles (solid and
liquid) covering a wide range of sizes and chemical compositions.
PM
10
refers to particles with a diameter of 10
μm
or less. PM
2.5
(
85
)
(
86
)
(
87
)
refers to particles with a diameter of 2.5
μm
or less. PM is emitted
from many human sources, including combustion.
Nitrogen dioxide (NO
2
) here pertains to a group of gases called
NO
x
, which also comprises nitrogen monoxide (NO). NO
x
is emitted
during fuel combustion
–
for example, from industrial facilities and
the road transport sector.
Low-level ozone is produced by photochemical action on
pollution. This year, for the first time, the impact of long-term
exposure to ozone has also been taken into account. In previous
analysis by the EEA, only the impact of short-term exposure was
estimated.
Directive (EU) 2016/2284 of the European Parliament and of the
Council of 14 December 2016 on the reduction of national
emissions of certain atmospheric pollutants, amending Directive
2003/35/EC and repealing Directive 2001/81/EC (OJ L 344,
17.12.2016,
p. 1),
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=uriserv:OJ.L_.2016.344.01.0001.01.ENG.
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Figure 17: PM
2.5
and NO
x
emissions by sector in Slovenia
(%), 2022
100%
80%
60%
40%
20%
In the 2022 EIR, Slovenia received two priority actions. The
first priority action was to further reduce emissions in the
context of the NAPCP. Slovenia has made substantial
progress on this, as the latest reported data show that the
2020–2029 emission reduction commitments are met and
that the emission reduction commitments for 2030
onwards are projected to be reached. The second priority
action was to ensure full compliance with EU air quality
standards and maintain downward emission trends. Based
on the latest data, Slovenia has made substantial progress
in this regard. Full compliance has been ensured for all
limit values and target values, with the exception of those
for ozone. Since 2019, downward emission trends have
been reported for all main pollutants.
2025 priority actions
0%
Waste
Transport
Residential,
commercial &
institutional
Manufacturing
and extractive
industry
Energy supply
Agriculture
PM
2.5
PM2.5
2,14%
9,82%
71,14%
NOₓ
0,09%
56,26%
9,38%
•
•
As part of the NAPCP, take action to
reduce emissions of air pollutants.
Ensure full compliance with the current
AAQD standards, also in light of future
stricter requirements under the revised
AAQD.
13,00%
2,68%
1,22%
14,17%
11,10%
9,00%
Industrial emissions
The main objectives of EU policy on industrial emissions
are to:
(i) protect air, water and soil and to prevent harmful
effects on human health and the environment;
(ii) prevent and manage waste;
(iii) improve energy and resource efficiency;
(iv) clean up contaminated sites.
The cornerstone of the policy is the Industrial Emissions
Directive (IED), which was revised in 2024 (
90
). The revision
improves the directive’s contribution to the zero pollution
objective. It has a strong focus on innovation, and builds
solid links between depollution, decarbonisation and
circularity, making it a key regulatory tool to accompany
the green transformation of EU industry by 2050.
The overview of industrial activities regulated by the IED
below is based on data reported to the EU Registry in
2022 (
91
).
In Slovenia, around 270 industrial installations were
required to have a permit based on the IED. The industrial
sectors in Slovenia with the most IED installations in 2022
were (i) metals production (24 %), (ii) waste management
17.12.2010, p. 17), as amended by Directive (EU) 2024/1785 of the
European Parliament and of the Council of 24 April 2024. Informal
consolidated
text,
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A02010L0075-
20240804&qid=1725983863299.
EEA,
European
Industrial
Emissions
Portal,
https://industry.eea.europa.eu/,
2022 being the baseline year for
all reports.
Source:
EEA, ‘National air pollutant emissions data viewer 2005–2022’,
25 June 2024,
https://www.eea.europa.eu/en/topics/in-depth/air-
pollution/national-air-pollutant-emissions-data-viewer-2005-2022.
In 2023, no exceedances above the limit values
established by the Ambient Air Quality Directive
(AAQD) (
88
) were registered in Slovenia. However, in two
air quality zones, the target values for ozone
concentrations have not been met (
89
).
Persistent breaches of air quality requirements, which
have severe negative effects on health and environment,
are being followed up by the European Commission
through infringement procedures covering all Member
States concerned; this includes a procedure for Slovenia
for exceedances of PM
10
limit values. The aim is that
appropriate measures are put in place to bring all zones
into compliance.
(
88
)
(
89
)
(
90
)
Directive 2008/50/EU of the European Parliament and of the
Council of 21 May 2008 on ambient air quality and cleaner air for
Europe
(OJ
L 152,
11.6.2008,
p. 1),
https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32008L0050.
EEA,
Eionet
Central
Data
Repository,
https://cdr.eionet.europa.eu/.
Directive 2010/75/EU of the European Parliament and of the
Council of 24 November 2010 on industrial and livestock rearing
emissions (integrated pollution prevention and control) (OJ L 334,
(
91
)
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(18 %), (iii) chemicals production (14 %) and (iv) intensive
rearing of poultry and pigs (14 %).
Figure 18 shows the damage to health and environment
due to the main industrial air pollutants. As this depends
on, among other factors, the size of the industrial sector in
each Member State, the figure also shows the ratio
between the damage and the industrial activity (expressed
in gross value added (GVA)), which gives an indication of
the emissions
‘intensity’.
Although Slovenia has the 20th
highest damage in the EU, it comes 14th for emissions
intensity, below the EU average of EUR 27.5/EUR 1 000
GVA. The main industrial contributors to emissions to air
(
92
) are the energy sector, the mineral industry for NO
X
emissions, waste management and the chemical industry
for dust emissions, and the energy sector, metals sector
and mineral sector for SO
2
and heavy metals.
Figure 18: Industrial air pollution damage and intensity
per Member State, 2021
Figure 19: Industrial releases of pollutants to water and
industrial activity in the EU-27
NB: Cd, cadmium; Hg, mercury; Ni, nickel; Pb, lead; total N, total nitrogen;
total P, total phosphorous.
Source:
EEA, ‘Industrial pollutant releases to water in Europe’, 30
May
2024,
https://www.eea.europa.eu/en/analysis/indicators/industrial-
pollutant-releases-to-water.
Concerning Slovenia in particular, Figure 20 shows the
industrial emissions of heavy metals to water, taking into
account the human toxicity of each metal, as well as
emissions intensity, based on its ratio with industrial
activity (expressed in GVA). Slovenia has the 20th highest
emissions of heavy metals to water and is in 19th position
for emissions intensity (below the EU average intensity of
0.864 kg/EUR 1 billion GVA).
Figure 20: Industrial releases and intensity of heavy
metals to water (2022)
Source:
EEA, ‘Industrial pollution intensity indicators –
EU large industry
air pollution damage costs intensity’, European Industrial Emissions
Portal,
2024,
https://industry.eea.europa.eu/analyse/industrial-
emissions-indicator.
Overall, the industrial emissions to water in the EU have
decreased over time for all the main pollutants. On
average in the EU, they appear to be decoupled from the
industrial activity, which has increased over the same
period (expressed in GVA), as shown in Figure 19.
Source:
EEA, ‘Industrial pollution intensity indicators –
EU large industry
water pollution intensity’, European Industrial Emissions Portal, 2024,
https://industry.eea.europa.eu/analyse/industrial-emissions-indicator.
As shown in Figure 21, the main industrial contributors to
emissions to water in Slovenia are the chemical sector for
heavy metals, nitrogen and total organic carbon, the pulp
and paper industry for total organic carbon and the metal
production and processing sector for polycyclic aromatic
hydrocarbons.
(
92
)
European Environment Agency, LRTAP, Air pollutant emissions
data viewer (Gothenburg Protocol, LRTAP Convention) 1990-2022,
https://www.eea.europa.eu/en/topics/in-depth/air-pollution/air-
pollutant-emissions-data-viewer-1990-2022.
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Figure 21: Relative releases to water from industry in
Slovenia (%), 2022
100%
75%
50%
25%
0%
Heavy Metals Ecotoxicity
Heavy Metals Human
Toxicity
Ferrous metal
Total organic carbon (TOC)
The Commission relies on the efforts of national
competent authorities to implement the legally binding
BAT conclusions and associated BAT emission levels in
environmental permits. This should result in considerable
and continuous reductions in pollution.
2025 priority actions
•
•
Reduce industrial air pollution damage
and intensity.
Engage with industry and environmental
NGOs to ensure proper contribution to
and implementation of BAT conclusions
and ensure timely updates to permits
following the publication of BAT
conclusions.
Ensure effective public participation and
access to justice in relation to the IED.
Chemicals
Pulp, paper and wood
NB: TOC, total organic carbon; COD, chemical oxygen demand
Source:
EEA, ‘Industrial
reporting under the Industrial Emissions Directive
2010/75/EU and European pollutant release and transfer register
Regulation (EC) No 166/2006
–
ver.
12.0 Sep. 2024 (tabular data)’, EEA
Geospatial
Data
Catalogue,
13 September
2024,
https://doi.org/10.2909/cf5e54c1-be99-4426-bcad-baa26c4f27a0.
•
IED provisions on public information and participation
require Member States to adopt transposition legislation
enabling members of the public to have access to relevant
information and participate in the approval process for
potentially polluting installations. Thus, the public and
non-governmental organisations (NGOs), alongside
competent authorities, play a role in ensuring compliance
of these permits with EU legislation. The IED contains
mandatory requirements on environmental inspections,
requiring a site visit to take place at least every 1–3 years,
using risk-based criteria. In addition, IED enforcement
provisions require Member States to determine effective,
proportionate, and dissuasive penalties applicable to
infringements of IED-based national provisions. In the
revised directive, the provisions set that worst
infringements can be sanctioned by fines of at least 3% of
the annual EU turnover of the legal person. The revised IED
also introduces a right to compensation for people whose
health has been harmed by such infringements.
The development of best available techniques (BATs), BAT
reference documents and BAT conclusions (
93
) ensures
effective collaboration between stakeholders and enables
better implementation of the IED.
Since the last EIR, the Commission has adopted BAT
conclusions on (i) waste incineration, (ii) the food, drink
and milk industries and (iii) surface treatment using
organic solvents, including the preservation of wood and
wood products with chemicals.
Major industrial accidents prevention
–
Seveso
The main objectives of EU policy on the prevention of
major industrial accidents are to:
(i) control major-accident hazards involving dangerous
substances, especially chemicals;
(ii) limit the consequences of such accidents for human
health and the environment;
(iii) continuously improve the prevention of, preparedness
for and response to major accidents.
The cornerstone of the policy is Directive 2012/18/EU (the
Seveso III Directive
(
94
)
).
The overview below of industrial plants regulated by the
Seveso III Directive (‘Seveso establishments’) is based on
data reported on eSPIRS (e-Seveso Plants Information
Retrieval System) for 2022–2024 (
95
) and the report by
Slovenia on the implementation of the Seveso III Directive
for 2019–2022 (
96
).
In Slovenia, in 2024, of the 60 Seveso establishments, 26
were categorised as lower-tier establishments and 30 as
upper-tier establishments (UTEs), based on the quantity of
hazardous substances likely to be present in them. UTEs
are subject to more stringent requirements. The change in
the number of Seveso establishments is presented in
Figure 22.
(
93
)
(
94
)
European Bureau for Research on Industrial Transformation and
Emissions, ‘BAT reference documents’,
European Commission
website,
https://eippcb.jrc.ec.europa.eu/reference/.
Directive 2012/18/EU of the European Parliament and of the
Council of 4 July 2012 on the control of major-accident hazards
involving dangerous substances, amending and subsequently
(
95
)
(
96
)
repealing Council Directive 96/82/EC (OJ L 197, 24.7.2012, p. 1),
https://eur-lex.europa.eu/eli/dir/2012/18/oj.
https://espirs.jrc.ec.europa.eu/en/espirs/content;
data extracted
in September 2024.
As provided for by Article 21(2) of the Seveso III Directive.
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/publication/94d57d74-735b-11ec-9136-01aa75ed71a1/language-
en/format-PDF/source-search;
eSPIRS data, extractions from 2022 and
2024; Analysis and summary of Member States' reports on
implementation of Directive 2012/18/EU on the control of major
accident hazards involving dangerous substances according to the format
established by Commission Implementing Decision 2014/896/EU -
Publications Office of the EU,
https://op.europa.eu/en/publication-
detail/-/publication/9bd73087-e9b8-11ef-b5e9-
01aa75ed71a1/language-en.
Figure 22: Number of Seveso establishments in Slovenia,
2018, 2022 and 2024
The following types of information are permanently
available for all UTEs in Slovenia: (i) information for the
public referred to in Annex V to the Seveso III Directive,
especially about how the public concerned will be warned
if there is a major accident; (ii) information about
appropriate behaviour in the event of a major accident;
and (iii) the date of the last site visit.
NB: LTE, lower-tier establishment.
Sources:
European Commission: Directorate-General for Environment,
Assessment and summary of Member States’ implementation reports for
Implementing Decision 2014/896/EU (implementing Directive
2012/18/EU on the control of major accident hazards involving
dangerous substances),
Publications Office of the European Union,
Luxembourg,
2022,
https://op.europa.eu/en/publication-detail/-
/publication/94d57d74-735b-11ec-9136-01aa75ed71a1/language-
en/format-PDF/source-search;
eSPIRS data, extractions from 2022 and
2024; Analysis and summary of Member States' reports on
implementation of Directive 2012/18/EU on the control of major
accident hazards involving dangerous substances according to the format
established by Commission Implementing Decision 2014/896/EU -
Publications Office of the EU,
https://op.europa.eu/en/publication-
detail/-/publication/9bd73087-e9b8-11ef-b5e9-
01aa75ed71a1/language-en.
The shares of UTEs for which information on safety
measures and requisite behaviours was actively made
available to the public in 2022 in the EU-27 are presented
in Figure 24. This provision on knowledge is an important
provision of the Seveso III Directive, as awareness by the
public of this information may ameliorate the
consequences of a major industrial accident.
Figure 24: Share of UTE for which information on safety
measures and requisite behaviours was actively made
available to the public per Member State (%), 2022
Member States are required to draw up external
emergency plans (EEPs). These EEPs are essential to allow
proper preparation and effective implementation of the
necessary actions to protect the environment and the
population should a major industrial accident occur.
According to Slovenia, in 2022, an EEP was required for all
30 UTEs. At the same date, all of them had been
established and tested over the last three years. The
summary of EEPs in Slovenia is shown in Figure 23.
Figure 23: Situation regarding EEPs in Slovenia, 2022
Sources:
European Commission: Directorate-General for Environment,
Assessment and summary of Member States’ implementation reports for
Implementing Decision 2014/896/EU (implementing Directive
2012/18/EU on the control of major accident hazards involving
dangerous substances),
Publications Office of the European Union,
Luxembourg,
2022,
https://op.europa.eu/en/publication-detail/-
/publication/94d57d74-735b-11ec-9136-01aa75ed71a1/language-
en/format-PDF/source-search;
eSPIRS data, extractions from 2022 and
2024; Analysis and summary of Member States' reports on
implementation of Directive 2012/18/EU on the control of major
accident hazards involving dangerous substances according to the format
established by Commission Implementing Decision 2014/896/EU -
Publications Office of the EU,
https://op.europa.eu/en/publication-
detail/-/publication/9bd73087-e9b8-11ef-b5e9-
01aa75ed71a1/language-en.
Sources:
European Commission: Directorate-General for Environment,
Assessment and summary of Member States’ implementation reports for
Implementing Decision 2014/896/EU (implementing Directive
2012/18/EU on the control of major accident hazards involving
dangerous substances),
Publications Office of the European Union,
Luxembourg,
2022,
https://op.europa.eu/en/publication-detail/-
In 2022, Slovenia received a priority action to strengthen
control and enforcement to ensure compliance with the
Seveso III Directive provisions, especially those on
information to the public. Data reported on the
implementation of the directive for 2019–2022 show a
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clear improvement in the numbers of EEPs established for
UTE and tested over the previous three years in Slovenia.
Slovenia will also need to ensure that the manufacture and
export of mercury-containing lamps are prohibited by the
deadlines set out in the Mercury Regulation.
Mercury Regulation
Noise
The Mercury Regulation establishes measures and
conditions concerning the use and storage of and trade in
mercury, mercury compounds and mixtures of mercury,
the manufacture and use of and trade in mercury-added
products and the management of mercury waste, in order
to ensure a high level of protection of human health and
the environment from anthropogenic emissions and
releases of mercury and mercury compounds. The revision
of the Mercury Regulation adopted in 2024 sets out rules
to address the last intentional uses of mercury in the EU
by phasing out the use of dental amalgam by 1 January
2025 except when deemed strictly necessary by the dental
practitioner based on the specific medical needs of the
patient, and prohibiting the manufacture and export of
additional mercury-containing lamps from 1 January 2026
or 1 January 2027 (depending on the lamp category).
The biggest challenge for Slovenia is likely to be the phase-
out of dental amalgam. Slovenia has made use of the
derogation under Article 10(2a) of the Mercury
Regulation, so the deadline for the phase-out is 30 June
2026. It will be important to quicky put in place the
measures laid down in the notification on the derogation
so as to ensure a socially and economically sound phase-
out, including amendments to health insurance
regulations, amendments to the financial plan of the
Health Insurance Institute of Slovenia to ensure adequate
financial and staffing conditions, and raising awareness
among dentists and patients about the changes to their
rights.
Slovenia is gradually implementing the restriction to the
use of amalgam in accordance with its national plan on
measures for phasing out dental amalgam use in
Slovenia (
97
).
The Environmental Noise Directive (
98
) requires a common
approach to avoid, prevent and reduce the harmful effects
of noise. The designated authorities are responsible for
making and approving noise maps and action plans for
agglomerations, major roads, major railways and major
airports. Member States decide on noise limits that are
not set at the EU level. Nevertheless, the zero pollution
action plan sets as a 2030 target a 30 % reduction
compared with 2017 in the share of people chronically
disturbed by transport noise.
Excessive noise from aircraft, railways and roads is one of
the main causes of environmental health‐related issues in
the EU. It can cause ischaemic heart disease, stroke,
interrupted sleep, cognitive impairment and stress
(
99
)
.
In Slovenia, environmental noise is estimated to cause at
least around 70 cases of ischaemic heart disease
annually (
100
) and some 9 200 people to suffer from
disturbed sleep (
101
).
Based on the latest set of information analysed, Slovenia
has not completed its noise mapping of agglomerations,
roads and railways.
Since Slovenia has failed to report to the Commission all
relevant information on the strategic noise maps,
including noise exposure of the population, the European
Commission has decided to open an infringement
procedure against Slovenia.
Action plans for noise management for agglomerations,
roads, railways and airports must be updated and
submitted to the Commission every five years. The
deadline for reporting noise action plans under the most
(
97
)
(
98
)
(
99
)
Ministry
of Health, ‘Nacionalni načrt o ukrepih za opustitev
uporabe amalgama v zobozdravstvu’ [National
plan on measures
for phasing out dental amalgam use], 170-1/2021-2711-32, 2024,
https://www.gov.si/assets/ministrstva/MZ/DOKUMENTI/razno/O
rganizacija-zdravstvenega-varstva/Izvajalci-zdravstvene-
dejavnosti/Nacionalni-nacrt-o-ukrepih-za-postopno-opustitev-
amalgama.pdf.
Directive 2002/49/EC of the European Parliament and of the
Council of 25 June 2002 relating to the assessment and
management of environmental noise
–
Declaration by the
Commission in the Conciliation Committee on the directive
relating to the assessment and management of environmental
noise (OJ L 189, 18.7.2002, p. 12),
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A32002L0049.
WHO, Environmental Noise Guidelines for the European Region,
Copenhagen,
2018,
https://www.who.int/europe/publications/i/item/978928905356
3.
(
100
)
(
101
)
These figures are an estimation by the EEA based on (i) the data
reported by Member States on noise exposure covered by
Directive 2002/49/EC for the round of noise mapping of 2022; (ii)
European Topic Centre on Air Pollution, Transport, Noise and
Industrial Pollution (ETC/ATNI),
Noise Indicators under the
Environmental Noise Directive 2021: Methodology for estimating
missing data,
Eionet report ETC/ATNI Report No 2021/06, Kjeller,
2021; and (iii) the
methodology for health impact
calculations
in European Topic Centre on Air Pollution and Climate Change
Mitigation (ETC/ACM),
Implications of environmental noise on
health and wellbeing in Europe,
Eionet report ETC/ACM
No 2018/10,
Bilthoven,
2018,
https://www.eionet.europa.eu/etcs/etc-atni/products/etc-atni-
reports/eionet_rep_etcacm_2018_10_healthimplicationsnoise.
More information on the adverse health effects of noise pollution
is available at:
https://www.eea.europa.eu/themes/human/noise/noise-2
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recent reporting cycle was 18 January 2025; these plans
have not been assessed yet.
2025 priority actions
•
•
Complete noise mapping.
Complete and implement action plans on noise
management.
Slovenia failed to comply with its legal obligation and had
not reported the third RBMPs in time, by 22 March 2022.
The Commission opened an infringement proceeding,
which has been closed, as Slovenia provided the missing
reports at the end of November 2023.
Nevertheless, because of the late reporting, the
Commission has not been able to include Slovenia in its
report on the assessment of the third RBMPs to the
European Parliament and to the Council. Consequently, it
has not been possible to update the 2022 EIR on that basis.
Reference is made to the 2022 EIR (
103
) for an overview of
the main issues.
In July 2024 the Commission initiated an infringement
procedure against Slovenia for violating Article 11 of the
Water Framework Directive because it has not introduced
periodical reviews of water permits and concessions. It is
necessary that Slovenia takes measures to comply with
the requirements of the directive.
Water quality and management
EU legislation and policy requires that the impact of
pressures on transitional waters, coastal waters and fresh
water (including surface waters and groundwater) be
significantly reduced. Achieving, maintaining or enhancing
a good status of waterbodies as defined by the Water
Framework Directive will ensure that EU citizens and the
environment benefit from good-quality and safe drinking
and bathing water. It will further ensure that the nutrient
cycle (nitrogen and phosphorus) is managed in a more
sustainable and resource-efficient way.
Water Framework Directive
The Water Framework Directive is the cornerstone of EU
water policy. The Water Framework Directive and other
water-related directives form the basis of sustainable and
integrated water management in the EU. They aim to
achieve a high level of protection of water resources,
prevention of further deterioration and restoration to
good status. These objectives are very important for the
EU’s competitiveness, strategic autonomy and security,
yet have become even more challenging in the face of
climate change affecting our precious water resources.
The Water Framework Directive establishes a procedural
framework for reaching good surface water ecological and
chemical status and good groundwater quantitative and
chemical status. This implies monitoring and classification
of all waterbodies, assessment of pressures and impacts
and identification of the most cost-effective measures to
achieve the objectives of the directive. The directive dates
from 2000 and set an initial deadline of 2015 for achieving
its objectives, with the option to extend the deadline to
the end of 2027. Every six years, Member States must
report their river basin management plans (RBMPs) to the
Commission. They should cover river basin districts in their
countries, some of which may be shared with other
countries. The Commission has assessed the third cycle of
RBMPs, which were to be submitted by March 2022, and
reported its findings to the European Parliament and to
the Council on 4
th
February 2024(
102
).
2025 priority action
•
Ensure periodic reviews of permits for discharges,
abstractions and other water uses, including
hydropower pressures.
Floods Directive
Every six years, following the same reporting cycle as the
RBMPs, all Member States also report their flood risk
management plans (FRMPs), based on the flood hazard
and risks maps (FHRMs) and the preliminary flood risk
assessments drawn up during the second cycle (2016–
2021).
The Commission assessed the FRMPs and reported its
findings to the European Parliament and to the Council on
4
th
February 2025.
There are two units of management in Slovenia, which are
the same as the Water Framework Directive’s river basin
districts.
The second Slovenian (national) FRMP improved on the
first insofar as it provides elements that can be used as
baselines for the plan’s measures. The second FRMP also
describes how climate projections were considered, and
refers to Slovenia’s policy framework for adaptation to
climate change.
2025 priority actions
•
FRMPs should provide details on how the FHRMs
were used in the choice of measures and how to
consider pluvial flooding.
(
102
)
https://webgate.ec.europa.eu/circabc-ewpp/ui/group/c04f478b-
d4dc-44f9-a211-087c01165b2c/library/faada4be-9fc3-4a48-
b972-f71e356019d5?p=1&n=10&sort=modified_DESC.
(
103
)
European Commission,
‘Environmental implementation review’,
https://environment.ec.europa.eu/law-and-
governance/environmental-implementation-review_en.
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•
Better explain the choice and implementation of flood
prevention and protection measures (prioritisation,
monitoring, costs of measures).
Improve public
involvement.
consultation
and
stakeholder
promptly. In particular, notices banning or advising against
bathing should be rapidly and easily identifiable
.
In 2023, out of the 47 Slovenian bathing waters, 37
(78.7 %) were of excellent quality, 17 % were of good
quality and 2.1 % of sufficient quality. No bathing waters
were found to be of poor quality.
Figure 25: Bathing water quality per Member State,
Albania and Switzerland (%), 2023
•
Drinking Water Directive
The objectives of the directive are to protect human
health by ensuring the quality intended for human
consumption and to improve access to drinking water. The
recast Drinking Water Directive is now applicable, and
Member States were required to transpose its provisions
into their national legal systems by 12 January 2023. Since
the entry into force of the recast directive, the
Commission has adopted several delegated and
implementing acts establishing (i) a watch list of
substances and compounds of concern for drinking
water (
104
), (ii) a methodology for measuring microplastics
in drinking water (
105
) and (iii) an EU system for testing and
approving materials that will be allowed to be in contact
with drinking water (
106
). Member States will have to take
these various Commission acts into account when
implementing the recast directive.
Finally, the Commission has now received data from
Member States on the quality of drinking water in 2017–
2019. The quality of drinking water (supplied by large
water suppliers) in Slovenia does not give rise to
concern (
107
).
From January 2026, the European quality standards for
PFAS in drinking water will apply, ensuring harmonised
Member States’ reporting of PFAS monitoring data in the
future.
Bathing Water Directive
The Bathing Water Directive requires Member States to
monitor and assess bathing water. It requires that, during
the bathing season, Member States disseminate to the
public information on bathing water quality actively and
Source:
EEA,
European Bathing Water Quality in 2023,
briefing
No 04/2024,
Copenhagen,
2024,
https://www.eea.europa.eu/publications/european-bathing-water-
quality-in-2023/.
Nitrates Directive
The Nitrates Directive (
108
) aims to protect water quality
across Europe by preventing nitrates from agricultural
sources that can pollute groundwater and surface waters
and by promoting the use of good farming practices. The
latest Commission report on the implementation of the
Nitrates Directive(
109
), dating back to 2021, warns that
nitrates are still causing harmful pollution to water in the
EU. Excessive nitrates in water are harmful to both human
health and ecosystems, causing oxygen depletion and
eutrophication. Cleaning of waters by national authorities
or farmers, where it has been undertaken, has had a
positive impact on the drinking water supply and on
biodiversity. It has also benefited the sectors
–
such as
(
104
)
(
105
)
(
106
)
https://environment.ec.europa.eu/publications/implementing-
decision-drinking-water-directive-watch-list_en.
Commission Delegated Decision (EU) 2024/1441 of 11 March 2024
supplementing Directive (EU) 2020/2184 of the European
Parliament and of the Council by laying down a methodology to
measure microplastics in water intended for human consumption
(notified under document C(2024) 1459) (OJ L, 2024/1441,
21.5.2024),
http://data.europa.eu/eli/dec_del/2024/1441/oj.
OJ L,
2024/365,
23.4.2024,
http://data.europa.eu/eli/dec_impl/2024/365/oj;
OJ L, 2024/367,
23.4.2024,
http://data.europa.eu/eli/dec_impl/2024/367/oj;
OJ L,
2024/369,
23.4.2024,
http://data.europa.eu/eli/reg_del/2024/369/oj;
OJ L, 2024/368,
23.4.2024,
http://data.europa.eu/eli/dec_impl/2024/368/oj;
OJ L,
(
107
)
(
108
)
(
109
)
2024/370,
23.4.2024,
http://data.europa.eu/eli/reg_del/2024/370/oj;
OJ L, 2024/371,
23.4.2024,
http://data.europa.eu/eli/reg_del/2024/371/oj;
see
the Commission web page on all six delegated acts for more
information
(https://environment.ec.europa.eu/publications/delegated-acts-
drinking-water-directive_en).
In summary, the compliance for all parameter groups in Slovenia
was at least 99.40 % in 2017, 99.06 % in 2018 and 99.13 % in 2019.
https://environment.ec.europa.eu/topics/water/nitrates_en.
Nitrates Directive Implementation Report (https://eur-
lex.europa.eu/legal-
content/en/TXT/?uri=CELEX%3A52018DC0257).
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Figure 26:
Proportion of urban waste water that fully
complies with the UWWTD (%)
, 2020
fisheries and tourism
–
that depend on biodiversity and on
a good supply of drinking water. Nevertheless, excessive
fertilisation remains a problem in many parts of the EU.
The report on the implementation of the Nitrates Directive
covering 2020–2023 will be available in 2025.
The analysis of Slovenia’s
RBMPs
has identified nutrients
from agriculture as an important pressure on
groundwater / surface waters that is affecting these
waters’
good status and as one of the main factors in not
meeting the WFD objectives.
Since 2017 Slovenia has received a priority action on
tackling nutrient pollution, especially from agriculture,
through the implementation of the Nitrates Directive.
Since the report on the implementation of the Nitrates
Directive covering 2020–2023 will be available only later
in 2025, the 2022 EIR priority action cannot be assessed.
NB: No data available for Greece.
Source: European Commission, 12
th
technical assessment of the UWWTD
Implementation, 2024(
110
).
2025 priority actions
•
Tackle nutrient pollution, especially nitrates from
agriculture, through the implementation of the
Nitrates Directive.
Urban Wastewater Treatment Directive
The Urban Wastewater Treatment Directive (UWWTD)
aims to protect human health and the environment from
the effects of untreated urban wastewater. It therefore
requires Member States to collect and treat (secondary or
biological treatment) waste water in all urban areas of
more than 2 000 people, and to apply a more stringent
treatment than secondary, with nitrogen and/or
phosphorus removal, to the waste water generated in
urban areas, also known as agglomerations, of more than
10 000 people, before they are discharged into waters and
their catchments, when they are sensitive to nitrogen
and/or phosphorus (i.e. eutrophic or tending to become
eutrophic).
In Slovenia, 91 agglomerations complied with the
requirements of the Directive in 2020. Another 32
agglomerations,
generating
679 139
population
equivalent of urban wastewater, did not comply with the
requirements of the directive.
In 2020, the Commission decided to refer Slovenia to the
Court of Justice because it had not applied the UWWTD
properly. In November 2023, the Court of Justice
established that Slovenia is in breach of the UWWTD for
the agglomeration of Ljubljana because of failure to treat
all the collected wastewater. It is essential that Slovenia
takes the necessary measures to fully comply with the
requirements of the directive.
This is all the more important as the directive has been
revised(
111
). The revised directive builds on the current
acquis,
strengthens existing treatment standards and
establishes an additional treatment of micropollutants in
urban waste water. Other new requirements relate to
moving towards the energy neutrality of the sector,
establishing an extended producer responsibility system
to ensure sustainable financing of micropollutant
treatment by the most polluting industries and ensuring
access to sanitation, especially for vulnerable and
marginalised groups. Slovenia has until 31 July 2027 to
transpose the new directive into its national legal system.
Since 2019 Slovenia has received priority actions
concerning the necessity to implement the UWWTD, but
despite some progress made, compliance has not been
achieved yet.
2025 priority actions
•
Take the necessary measures to ensure full
implementation of the current UWWTD, taking into
account the new requirements of the recast directive.
(
110
)
https://op.europa.eu/en/publication-detail/-
/publication/4c97f846-44b2-11ef-865a-01aa75ed71a1/language-
en
(
111
)
Directive (EU) 2024/3019 of the European Parliament and of the
Council of 27 November 2024 concerning urban wastewater
treatment (recast)
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Chemicals
The EU seeks to ensure that chemicals are produced and
used in a way that minimises any significant adverse
effects on human health and the environment. In October
2020, the Commission published its chemicals strategy for
sustainability towards a toxic-free environment (
112
),
which led to some systemic changes in EU chemicals
legislation. The strategy is part of the EU’s zero pollution
ambition
–
a key commitment of the European Green
Deal.
The EU’s chemicals legislation (
113
) provides a baseline
protection for human health and the environment. It also
ensures stability and predictability for businesses
operating in the internal market.
Since 2007, the Commission has gathered information on
the enforcement of the Registration, Evaluation,
Authorisation and Restriction of Chemicals (REACH)
Regulation and the Classification, Labelling and Packaging
(CLP) Regulation. In December 2020, the Commission
assessed the Member States’ reports
(
114
)
on the
implementation
and
enforcement
of
these
115
regulations ( ). It is apparent from the Commission’s
report that there are still many disparities in the
implementation of the REACH and CLP Regulations,
notably in the area of law enforcement. Recorded
compliance levels in Member States, generally quite stable
over time, appear to be getting slightly worse. This may be
because: (i) enforcement authorities are becoming more
(
112
)
Communication from the Commission to the European
Parliament, the Council, the European Economic and Social
Committee and the Committee of the Regions
–
Chemicals
strategy for sustainability: Towards a toxic-free environment,
COM(2020) 667 final of 14 October 2020,
https://eur-
lex.europa.eu/legal-
content/EN/TXT/?uri=COM%3A2020%3A667%3AFIN;
Regulation
(EC) No 1272/2008 of the European Parliament and of the Council
of 16 December 2008 on classification, labelling and packaging of
substances and mixtures, amending and repealing Directives
67/548/EEC and 1999/45/EC, and amending Regulation (EC)
No 1907/2006
(OJ
L 353,
31.12.2008,
p. 1),
https://publications.europa.eu/resource/cellar/c6b6a31d-8359-
11ee-99ba-01aa75ed71a1.0004.02/DOC_2.
Namely, Regulation (EC) No 1907/2006 of the European
Parliament and of the Council of 18 December 2006 concerning
the registration, evaluation, authorisation and restriction of
chemicals (REACH), establishing a European Chemicals Agency,
amending Directive 1999/45/EC and repealing Council Regulation
(EEC) No 793/93 and Commission Regulation (EC) No 1488/94 as
well as Council Directive 76/769/EEC and Commission Directives
91/155/EEC, 93/67/EEC, 93/105/EC and 2000/21/EC (OJ L 396,
30/12/2006,
p. 1),
https://eur-lex.europa.eu/legal-
content/en/TXT/?uri=CELEX%3A32006R1907;
and Regulation (EC)
No 1272/2008 of the European Parliament and of the Council of
16 December 2008 on classification, labelling and packaging of
substances and mixtures, amending and repealing Directives
67/548/EEC and 1999/45/EC, and amending Regulation (EC)
No 1907/2006 (OJ L 353, 31.12.2008, p. 1),
https://eur-
lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A02008R1272-20221217.
effective in detecting non-compliant products/companies
and (ii) more non-compliant products are being placed on
the EU market.
In August 2021, the Commission published a measurable
assessment of the enforcement (
116
) of the two main EU
regulations on chemicals using a set of indicators on
different aspects of enforcement. Since 2021, the list of
chemicals subject to restrictions has been expanded as
new entries have been added to Annex XVII to the REACH
Regulation (
117
).
In 2023, new hazard classes were added, and the revision
of the CLP Regulation was tabled (published in November
2024) (
118
). The new hazard classes cover endocrine
disruptors and persistence-related hazards while the
revision of the regulation encompasses new rules on
online sales to better tackle non-compliances observed
over the years. Also in 2023, the Conference of the Parties
of the Stockholm Convention (COP) decided to include, in
its Annex A (which lists banned substances), three new
chemicals (
119
). The Commission is working on the
delegated acts to include these substances in Annex I to
the Persistent Organic Pollutants Regulation by 2025 at
the latest.
The Member States’ reporting exercise set out in
Article 117 of the REACH Regulation and Article 46 of the
CLP Regulation is conducted every five years. The results
of the coming one are expected in 2025, hence the
(
114
)
(
115
)
(
116
)
(
113
)
(
117
)
(
118
)
(
119
)
European Commission,
Technical assistance to review the existing
Member States reporting questionnaire under Articles 117(1) of
REACH and 46(2) of CLP
–
Final report,
Publications Office of the
European
Union,
Luxembourg,
2020,
https://circabc.europa.eu/ui/group/8ee3c69a-bccb-4f22-89ca-
277e35de7c63/library/a4abce8c-8425-455f-b7e6-
0ead917bde6b/details.
In line with Article 117(1) of the REACH Regulation and
Article 46(2) of the CLP Regulation.
European Commission, Directorate-General for Internal Market,
Industry, Entrepreneurship and SMEs,
REACH and CLP
Enforcement: EU level enforcement indicators,
Publications Office
of
the
European
Union,
Luxembourg,
2021,
https://op.europa.eu/en/publication-detail/-
/publication/e5c3e461-0f85-11ec-9151-01aa75ed71a1/.
These are substances in tattoo inks and permanent make-up,
N,N-
dimethylformamide, formaldehyde (and formaldehyde releasers),
lead in PVC (polyvinyl chloride), siloxanes (D4, D5, D6) and, finally,
microplastics.
Regulation (EU) 2024/2865 of the European Parliament and of the
Council of 23 October 2024 amending Regulation (EC) No
1272/2008 on classification, labelling and packaging of substances
and mixtures, OJ L, 2024/2865, 20.11.2024, p.1 (Regulation
- EU -
2024/2865 - EN - EUR-Lex).
These are methoxychlor, dechlorane plus and UV-328. In the case
of the pesticide methoxychlor, there are no exemptions from the
ban. However, for the two plastic additives, dechlorane plus and
UV-328, the COP decision lists some time-limited specific
exemptions.
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absence of new country-specific data on enforcement
since 2022.
In Slovenia, only four full-time equivalent workers are
allocated to the enforcement of the REACH and CLP
Regulations, with the aim of increasing the number to five
in the near future.
For REACH and CLP, the levels of compliance observed
were similar in 2021, 2022 and 2023. Slovenia is devoting
significant resources to training and lectures on
implementing the REACH and CLP Regulations. Over those
three years, the compliance level observed in product
checks varied between 65 % and 82.5 % for CLP.
In 2020, Slovenia participated in an EU-coordinated
enforcement project on products sold online, called
REACH-EN-FORCE (REF)-8 (
120
). The report was adopted in
November 2021, so it could not be taken into account in
the previous EIR. Since then, Slovenia has participated in
all REF projects: on authorisation provisions, integrated
chemical control of products and safety data sheets.
Figure 27: Compliance of imported products
–
results of
the REF-8 project (%)
Figure 28: Number of REF-8 checks performed per
100 000 inhabitants (EU average = 1.24)
Slovenian participation in the coordinated enforcement
project (REF-8) was below the EU average, which is rather
low because of the lack of involvement of certain large
Member States.
From this project and others conducted with the help of
the European Chemicals Agency in the past years, online
sales have been proved to correspond consistently to
higher non-compliance rates in checks performed across
the EU, in particular when related to imported products.
In 2022, Slovenia received a priority action related to
upgrading administrative capacities in implementation
and enforcement to move towards a policy of zero
tolerance of non-compliance. In the absence of formal
reporting since 2022, no progress has been shown and this
priority action remains valid in 2025, partly because of the
experience with the REF-8 project.
2025 priority action
A risk approach was used for the targeting of control
measures in order to maximise the chances of identifying
non-compliances. Therefore, the non-compliance rates
presented above cannot be considered the average non-
compliance rates of products in the EU. However, the
proportion of non-compliance cases found in the REF-8
project are of concern.
•
Upgrade
the
administrative
capacities
in
implementation and enforcement to move towards a
policy of zero tolerance of non-compliance.
Increase involvement in the activities of the Forum for
Exchange of Information on Enforcement of the
European Chemicals Agency, including in the
coordinated enforcement projects, called REFs.
Increase customs checks and checks of products sold
online with regard to
compliance with
chemicals
legislation.
•
•
(
120
)
European Chemicals Agency,
REF-8 project report on enforcement
of CLP, REACH and BPR duties related to substances, mixtures and
articles
sold
online,
Helsinki,
2021,
https://echa.europa.eu/documents/10162/17088/project_report
_ref-8_en.pdf/ccf2c453-da0e-c185-908e-
3a0343b25802?t=1638885422475,
p. 20.
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4. Climate action
The impacts of climate change have continued to increase
in recent years, inflicting damage and suffering in the EU
and around the world. Globally, 2023 was the hottest year
on record, while Europe has been warming twice as
quickly as the global average, and is now the fastest-
warming continent. The frequency and severity of
extreme climate events are also increasing. Against this
backdrop, the EU has demonstrated its determination to
implement the European Green Deal and to become
climate neutral and resilient by 2050, ensuring sustainable
competitiveness and supporting EU industry in the net-
zero transition. The European Climate Law is the EU’s
response to the need for action. It sets the objective of
achieving climate neutrality by 2050 and a midterm target
of a reduction in GHG emissions of at least 55 % by 2030,
and outlines the adaptation efforts necessary to adjust to
climate change’s present and future impacts. Almost all
the
‘Fit
for 55’ proposals set out in the European Green
Deal have been agreed in law, and the European
Commission recommended a new intermediate climate
target of a 90 % reduction in emissions by 2040. In 2024,
the Member States submitted updated national energy
and climate plans for 2021–2030, reflecting the increased
ambition of the revised EU legislation. In 2024, the
European Commission also released, jointly with the EEA,
the first-ever European climate risk assessment.
Over the last three decades, since 1990, the EU has
achieved steady decreases in its emissions, reaching a
running total in 2022 of
–
32.5 % (
121
). However, the EU
and its Member States need to step up their
implementation efforts and accelerate emissions
reduction to stay on track to reach their targets of a 55 %
reduction in net GHG emissions by 2030 and climate
neutrality by 2050. Between 1990 and 2022, net GHG
emissions of Slovenia increased by 7 %, making it one of
the countries with a net increase.
The
‘Fit
for 55’ legislative package reflects the need to
speed up the green transition. It includes (i) strengthening
and expanding the EU emissions trading system (ETS), with
the creation of a new, second, ETS for transport and
buildings together with a dedicated Social Climate Fund to
help citizens during the transition; (ii) increasing targets
under the Effort Sharing Regulation; and (iii) a revised
Regulation for Land Use, Land Use Change and
Forestry (
122
). The package has been almost fully adopted,
and the Member States have been implementing the
legislation.
The key strategic document at country level is the National
Energy and Climate Plan (NECP) (
123
). Slovenia submitted
its updated plan in January 2025 after the deadline set by
the Regulation on the Governance of the Energy Union
and Climate Action (
124
). The European Commission
assessed the plan and the extent to which Slovenia has
followed the recommendations for the draft version. The
findings from the assessment are:
•
Emissions under the Effort Sharing Regulation will
decrease by 29% in 2030 compared to 2005, and
Slovenia will meet its target of 27%.
Slovenia is in line with its LULUCF target.
Slovenia has a gap to its target for the share of
renewable energy.
Slovenia is in line with its final energy consumption
target.
•
•
•
To minimise the impacts of climate policies on vulnerable
people and sectors, Slovenia is using the Just Transition
Fund, Modernisation Fund and will use Social Climate
Fund from 2026 (for more information, see Chapter 5
below).
Figure 29: Total GHG emissions (excluding international
aviation) (%), 1990–2022
The EU emissions trading system
The EU ETS is the key tool for reducing GHG emissions
cost-effectively across all Member States. It is the world’s
biggest carbon market, covering around 40 % of the EU’s
(
121
)
(
122
)
EU net domestic emissions, including the land use, land-use
change and forestry (LULUCF) sector and excluding international
aviation.
A full overview of the Fit for 55 package is available at
https://commission.europa.eu/strategy-and-policy/priorities-
2019-2024/european-green-deal/delivering-european-green-
deal/fit-55-delivering-proposals_en.
(
123
)
(
124
)
More information about NECP is on the dedicated website
https://energy.ec.europa.eu/topics/energy-strategy/national-
energy-and-climate-plans-necps_en.
Article 14 of regulation 2018/1999 on the Governance of the
Energy Union and Climate Action
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total GHG emissions from electricity and heat generation,
the manufacturing industry, aviation within Europe (
125
)
and, from 2024, maritime transport also.
The system sets a limit or cap on the total amount of GHGs
that can be emitted at the EU level. Within this limit,
companies buy emissions allowances (one allowance gives
the right to emit 1 tonne of CO
2
eq (carbon dioxide
equivalent)), in auctions or through trading allowances
with others. The cap is reduced annually to ensure that
overall emissions in the sectors covered decrease over
time.
The emissions under the ETS decreased by 48 % from 2005
to 2023.
In 2023, 70 % of GHGs emitted by Slovenia’s ETS
installations came from power generation, significantly
more than the EU average (57 %). Of the total emissions
from all industry sectors, cement and lime production
emitted 53 %, 30 % came from other industries and 18 %
came from the metals industry. Between 2019 and 2023,
the power sector registered a higher emissions reduction
(28 %) than the industry sectors (23 %). Between 2013 and
2023, GHG emissions declined by 44 % in power
generation and by 18 % in industrial manufacturing,
leading to a total GHG reduction of 38 % in this period.
From 2027, a new emissions trading system, called ETS2,
for buildings, road transport and additional sectors
(mainly industry not covered by the current ETS), will
become fully operational (
126
). Member States should
have notified full transposition of the provisions of the
revised EU ETS Directive related to the new ETS2 into
national law by 30 June 2024. Slovenia did not
communicate full transposition into national law by this
deadline (
127
). The Commission therefore started an
infringement procedure against Slovenia on 25 July 2024,
for failing to fully transpose the provisions into national
law.
Slovenia
has since partially notified transposition of the
relevant provisions of the ETS 2 Directive to the
Commission. The monitoring and reporting requirements
and the obligation to hold a permit to carry out activities
under ETS2 will commence on 1 January 2025.
.
the Commission may decide to take the infringement case
further.
Effort sharing
The Effort Sharing Regulation (ESR) (
129
) covers GHG
emissions from domestic transport (excluding CO₂
emissions from aviation), buildings, agriculture, small
industry and waste. Emissions from these sectors account
for around 60 % of the EU’s domestic emissions. The
regulation sets the EU-wide target to reduce emissions
from the effort sharing sectors by 40 % by 2030 compared
with 2005 levels. This overall target for the EU translates
to binding national emission reduction targets for each
Member State. Slovenia‘s target is
–
27 %.
In addition to the 2030 targets, Member States have
annual GHG emissions limits (annual emission allocations),
reducing every year until 2030.
There is some flexibility to take account of annual
fluctuations in emissions, by trading emissions and
transfers from the ETS and LULUCF.
Based on historical emissions and the most updated
projections Slovenia is on track to achieve its 2030 ESR
target. Projected emission reduction is 1.6 percentage
points above the 2030 target.
The largest contributor is the domestic transport sector,
which accounted for 54 % of all effort sharing emissions in
2022. And the share is growing even though net emissions
decreased in 2021. Continued momentum is crucial for the
take-off of zero-emission mobility in Slovenia.
Around 1 % of the car fleet were battery electric vehicles
in 2023 (the EU average is 1.2 %), and Slovenia has about
2 000 publicly accessible charging points, or one for every
six e-vehicles (above the EU average of 1:10). Rail plays a
significant role in the transport of freight, accounting for
34 % of freight transported (the remainder being
transported by road). However, only 50 % of the rail
network is electrified (EU average: 56 %). For passenger
transport, 85 % (
130
) of distances travelled are by car.
Emissions from buildings decreased by 58 % from 2005 but
Slovenia still needs to continue working towards reaching
its long-term renovation strategy target to reduce
buildings’ energy consumption and to increase the share
of renewable energy in heating and cooling.
In contrast, emissions from agriculture decreased only by
4 % from 2005.
On 25 January 2024 the Commission started an
infringement case against Slovenia for its failure to fully
transpose previous revisions of the ETS directive (
128
) into
national law. Slovenia has since notified partial
transposition of either one or both revisions to the
Commission. In the absence of a complete transposition,
(
125
)
(
126
)
(
127
)
Flights between the Member States including departing flights to
Norway, Iceland, Switzerland and the United Kingdom.
Directive (EU) 2023/959 (https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=uriserv:OJ.L_.2023.130.01.0134.01.ENG).
Slovenia notified a partial transposition.
(
128
)
(
129
)
(
130
)
Directive - 2023/959 - EN - EUR-Lex
and
Directive - 2023/958 - EN
- EUR-Lex.
Regulation
(EU)
2018/842
(https://eur-
lex.europa.eu/eli/reg/2018/842).
Statistical
Office, ‘Dnevna
mobilnost potnikov, 2021’, Statistical
Office website,
https://www.stat.si/StatWeb/News/Index/10324.
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Figure 30: Effort-sharing emissions by sector (%), 2022
change
–
Southern
regions (
131
).
Europe
and
low-lying
coastal
The country is vulnerable to climate-change-related
events such as heavy flooding, windstorms, heatwaves
and wildfires. Agriculture and forestry have embraced
adaptation strategies, but implementation has been slow
and uneven. Furthermore, Slovenia has not yet identified
further vulnerabilities beyond these sectors. In 1980–
2020, only 6 % of reported losses caused by climate-
related events were insured. Flooding is the highest risk,
as evidenced by the floods of summer 2023, but its
potential economic impacts can be mitigated by good
insurance coverage. Nature-based solutions are key to
mitigating the impact of floods. Integrating adaptation,
such as nature-based solutions, into sectoral policies,
including for flood protection, is necessary, as are setting
up a monitoring, reporting and evaluation system and
better coordination between sectors of government.
Slovenia adopted its national adaptation strategy in 2016
but has never updated it. There are no national or regional
adaptation plans.
The European Commission identified four priority actions
in the 2022 edition of the review (
132
).
There is a progress in energy efficiency of buildings, but
overall efficiency gains have slowed down, leaving
significant room for improvement, especially in the
transport sector, which remains an issue for Slovenia. Car
fleet electrification is on track but more has to be done to
increase the share of public transportation and electrify
the rail network.
The share of renewable energy remains above the EU
average but the pace is slowing down and there are still
gaps (insignificant share of wind energy, low share of heat
pumps).
Slovenia have implemented a Law on renewable energy
sources and a Decree on renewable energy sources in
transport, in line with EU Directives 2009/28/EC and (EU)
2015/1315, so they include the sustainability criteria
under the Renewable Energy Directive (2009/28/EC).
Land use, land-use change and forestry
The Land use, land-use change and forestry (LULUCF)
sector plays a significant role in achieving the EU’s climate
neutrality goal. In the EU, this sector absorbs more GHGs
than it emits, removing significant volumes of carbon from
the atmosphere. Thus, it is the only sector with negative
emissions.
In Slovenia, LULUCF net removals decreased from 0.64 Mt
CO
2
eq to 0.17 Mt CO
2
eq from 2019 to 2022. The country’s
forests are responsible for a major share of these
removals.
Slovenia‘s target in 2030 is to enhance land removals by
additional
−0.2
Mt of CO
2
eq compared with the yearly
average of 2016–2018. The latest available projections
show a surplus over the target of
−2.6
Mt of CO
2
eq in
2030. Therefore, Slovenia is on track to meet its 2030
target.
Adaptation to climate change
Halting all GHG emissions would still not prevent climate
impacts that are already occurring. Therefore, adaptation
to climate change is also a key component of climate
policy.
Two out of the three regions of Slovenia are identified as
hotspots of climate risks most affected by climate
(
131
)
EEA,
European Climate Risk Assessment,
EEA Report 01/2024,
Publications Office of the European Union, Luxembourg, 2024,
https://climate-adapt.eea.europa.eu/en/eu-adaptation-
policy/key-eu-actions/european-climate-risk-assessment.
Commission Staff Working Document
–
Environmental
implementation review 2022 country report
–
Slovenia
accompanying the document Communication from the
2025 priority actions
•
Implement all polices and measures that are needed
to achieve targets laid down in the Effort Sharing
Regulation (ESR) and the Land Use and Land-Use
Change and Forestry (LULUCF) regulation. More
detailed priority actions are set out in the assessment
(
132
)
Commission to the European Parliament, the Council, the
European Economic and Social Committee and the Committee of
the Regions
–
Environmental implementation review 2022:
Turning the tide through environmental compliance,
SWD/2022/273 final of 8 September 2022,
https://eur-
lex.europa.eu/legal-
content/EN/TXT/?uri=comnat:SWD_2022_0273_FIN.
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of the final National Energy and Climate plan
(NECP)(
133
).
(
133
)
European Commission, National energy and climate plans
https://commission.europa.eu/energy-climate-change-
environment/implementation-eu-countries/energy-and-climate-
governance-and-reporting/national-energy-and-climate-plans_en
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Part II: Enabling framework: implementation tools
5. Financing
The EU budget supports climate investment in
Slovenia with significant amounts in 2021–2027,
with revenues from the EU ETS also feeding into the
national budget. During 2020–2022, Slovenia’s
revenues from auctioning reached EUR 366 million
in total, with all of it spent on climate and energy.
In addition, the annual investment needed to meet
its environmental objectives in the areas of pollution
prevention and control, the circular economy and
waste, water protection and management, and
biodiversity and ecosystems is estimated to be
EUR 1.8 billion per year in Slovenia.
These four environmental areas currently receive
total funding of around EUR 1.2 billion per year;
thus, there is a gap of EUR 0.6 billion per year.
Of the annual environmental investment gap,
EUR 0.2 billion
concerns
biodiversity
and
ecosystems, EUR 0.06 billion pollution prevention
and control, EUR 0.3 billion water and around
EUR 0.1 billion the circular economy.
climate action in 2021–2027 (with around 40 % of
this via the ERDF), with a further EUR 10.7 million
from the European Maritime, Fisheries and
Aquaculture Fund (EMFAF) (
135
).
The RRF contributes to climate finance in Slovenia
with EUR 1.3 billion up to 2026, representing 48.9 %
of the RRP (
136
).
The European Investment Bank (EIB) provided
EUR 109.9 billion financing across the EU-27
between 2021 and mid 2024 to support energy,
transport and industry projects that are aligned with
the EU’s climate objectives. Of this amount,
EUR 378 million was assigned to Slovenia in the
reference period (
137
).
National financing, including EU emissions trading
system revenues
Revenues from the auctioning of emission
allowances under the EU ETS, which feed directly
into national budgets, amounted to EUR 65 million
in 2020, EUR 130 million in 2021 and
EUR 171 million in 2022 in Slovenia, totalling
EUR 366 million in the three-year period. 100 % of
the auctioning revenues is used for climate and
energy projects. Some projects receive funding later
than in the year in which the auctioning revenues
were generated (
138
).
From the remaining part of the EU ETS revenues that
feed into the Innovation Fund and the
Modernisation Fund, further support is available to
climate action at the EU level.
It should be noted that investment in climate action
also supports the environment and, therefore, the
environmental investments described in the
following sections cannot be regarded as entirely
additional to climate investment (
139
).
Climate finance landmarks
EU funding for climate action
The EU budget supports climate action in the EU-27
with EUR 657.8 billion in the 2021–2027 budgetary
period across the various programmes and funds,
representing an overall 34.3 % contribution level. Of
this, cohesion policy provides EUR 120 billion (over
half of it through the European Regional
Development Fund (ERDF)), the recovery and
resilience facility (RRF) EUR 275.7 billion and CAP
EUR 145.9 billion (
134
).
In Slovenia, the EU cohesion policy (considering the
EU contribution amount) provides EUR 1.3 billion for
(
134
)
(
135
)
(
136
)
European Commission,
Statement of Estimates of the
European Commission
–
For the financial year 2025,
Publications Office of the European Union, Luxembourg,
2024,
pp. 94-96,
https://commission.europa.eu/document/download/7a0
420e1-599e-4246-9131-
ccb7d505d6d9_en?filename=DB2025-Statement-of-
Estimates_1.pdf.
See
the
Cohesion
Open
Data
Platform
(https://cohesiondata.ec.europa.eu/).
EU Commission datasets and the Recovery and Resilience
Scoreboard
(
137
)
(
138
)
(
139
)
(https://ec.europa.eu/economy_finance/recovery-and-
resilience-scoreboard/index.html).
A list of financed projects is provided by the EIB
(https://www.eib.org/en/projects/loans/index.htm).
European Commission: Directorate-General for Climate
Action,
Progress Report 2023
–
Climate action,
Publications
Office of the European Union, Luxembourg, 2023,
https://climate.ec.europa.eu/news-your-
voice/news/climate-action-progress-report-2023-2023-
10-24_en.
NB: indirect investments (from climate and other policies)
in support of the environment are accounted for via the
tracking.
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Environmental financing and investments
This section describes Slovenia’s investment needs,
current financing and gaps as they relate to the four
environmental
objectives
beyond
climate
objectives, namely tackling pollution, the circular
economy and waste, water protection and
management, and biodiversity and ecosystems (
140
).
The environment overall
Investment needs
The overall environmental investment needs to be
sufficient to enable Slovenia to meet its objectives in
the areas of pollution prevention and control, the
circular economy and waste, water protection and
management, and biodiversity and ecosystems is
estimated to be EUR 1.8 billion per year (in 2022
prices).
A significant part of the estimated requirement,
around EUR 701 million per year, can be attributed
to the need to support water and marine. For
biodiversity and ecosystems, the annual investment
needs are EUR 326 million, for pollution prevention
and control EUR 403 million and for the circular
economy EUR 357 million (in 2022 prices).
Current investments
To implement the environmental investments
needed, the available financing is estimated to
currently reach an annual EUR 1.2 billion in Slovenia
from EU and national sources combined (in 2022
prices).
Total environmental funding from the multiannual
financial framework (MFF) is estimated to reach
around EUR 1.3 billion for Slovenia in total, during
2021–2027 (or EUR 184 million per year).
Table 1: Key environmental allocations from EU
funds to Slovenia (million EUR), 2021–2027
Instrument
Cohesion policy
ERDF
Cohesion Fund
Just Transition Fund
CAP
European
Agricultural
Guarantee Fund
Allocations
817.9
(
a
)
383.7
382.0
52.2
357.3
(
b
)
128.4
228.9
European
Agricultural
Fund
for
Rural
Development
EMFAF
Other MFF sources
RRF
(
d
) (2021–2026)
(
a
)
8.1
106.1 (
c
)
860
European Commission, 2021-2027 cohesion policy
(planned) allocations in
EU amount
excluding national co-
financing, based on the tracking in the Common Provisions
Regulation (CPR, 2021) Annex I. Please note potential data
changes that may have arisen between the EIR preparation
cut-off date (31 October 2024) and its publication date.
Source
and
further
information:
https://cohesiondata.ec.europa.eu/2021-2027-
Categorisation/2021-2027-Planned-finances-detailed-
categorisation/hgyj-gyin/about_data.
Regulation (EU) 2021/2115 of the European Parliament
and of the Council of 2 December 2021 establishing rules
on support for strategic plans to be drawn up by Member
States under the common agricultural policy (CAP strategic
plans) and financed by the European Agricultural
Guarantee Fund (EAGF) and by the European Agricultural
Fund for Rural Development (EAFRD) and repealing
Regulations (EU) No 1305/2013 and (EU) No 1307/2013 (OJ
L 435
6.12.2021,
p. 1),
Annex XI,
https://eur-
lex.europa.eu/eli/reg/2021/2115.
Note that 2021-2027 combines factual data for 2021 and
2022 and expenditure under the relevant specific
objectives (SOs) of the CAP strategic plans from 2023, using
the
EU
biodiversity
tracking
methodology
(https://commission.europa.eu/system/files/2023-
06/Biodiversity%20tracking%20methodology%20for%20e
ach%20programme%202023.pdf). Source: European
Commission.
(
b
)
(
c
)
(
d
)
Space Fund, Horizon Europe, financial instrument for the
environment and the Connecting Europe Facility.
Outside the MFF. Note that the RRF applies a similar
environmental tracking scheme (set in the RRF Regulation,
Annex VI) as the EU’s cohesion policy. RRF dataset version
used: July 2024, prior to 2025 revisions. Data source:
European Commission.
Slovenia, in addition to receiving EU funds
earmarked specifically for it in 2021–2027, can also
benefit from funding programmes that can be
accessed at the EU level and are open to all Member
States. These include the financial instrument for the
environment
(LIFE)
programme
141
(EUR 5.4 billion) ( ),
Horizon
Europe
142
(EUR 95.5 billion) ( ), the Connecting Europe
(
140
)
Research, development and innovation is accounted for
under each environmental objective. The financing needs,
baselines and gaps estimates are based on the Directorate-
General for
Environment’s internal analysis (of 2024).
Throughout this chapter, specific references are provided
to the most important data sources used.
(
141
)
(
142
)
https://cinea.ec.europa.eu/programmes/life_en.
European Commission, Horizon Europe (https://research-
and-innovation.ec.europa.eu/funding/funding-
opportunities/funding-programmes-and-open-
calls/horizon-europe_en).
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Facility (EUR 37.7 billion) (
143
) and funds that can be
mobilised through the InvestEU programme (
144
).
Slovenia’s RRP supports climate objectives through
funding of EUR 1.3 billion (48.9 % of total), with an
additional
EUR 0.11 billion
(4 %)
for
the
environment.
The EIB provided around EUR 151.2 million in
environment-related financial contributions to
Slovenia from 2021 to mid 2024, all of it in the area
of sustainable energy, transport and industrial
projects, which provides significant co-benefits to
reducing air pollution, environmental noise and
other pollution.
The EU’s total national expenditure on
environmental protection (operating plus capital
expenditure) was EUR 298 billion in 2020 and
EUR 321 billion in 2021, representing around 2.2 %
of EU-27 GDP. In Slovenia, the total national
environmental protection expenditure was
EUR 1.3 billion in 2020 and EUR 1.2 billion in 2021,
representing 2.7 % and 2.4 % of GDP, respectively.
Of the total environmental expenditure, the national
capital expenditure (investment) on environmental
protection amounted to EUR 54.5 billion in 2020 and
EUR 59.9 billion in 2021 in the EU-27, representing
around 0.4 % of the EU’s GDP. In Slovenia, the
national environmental protection investment
reached
EUR 476 million
in
2020
and
EUR 418 million in 2021, representing around 0.8–
1.0 % of GDP.
Split by institutional sector, 33 % of Slovenia’s
national environmental protection investment
(capital expenditure) comes from the general
government budget, with 3 % coming from specialist
private-sector producers (of environmental
protection services, such as waste and water
companies) and 63 % from the general business
sector, whose environmental activities are usually
ancillary to its main activities. At the EU level, 38 %
of environmental protection investment comes from
governments, 40 % from specialist private-sector
producers and 22 % from the general business
sector (
145
).
Slovenia’s total financing for environmental
investment reaches an estimated EUR 1.2 billion per
year (in 2022 prices), including EU funding and
Source:
Directorate-General for Environment analysis.
national public and national private expenditure. Of
the total, the share of EU funds (including EIB funds)
reaches 26 %, with around 74 % national financing.
The total public financing (EU plus national public)
represents 51 % of the total.
The gap
To meet its four environmental objectives beyond
climate change, the additional investment need over
the current levels (i.e. the gap) reaches an estimated
EUR 0.6 billion per year in Slovenia, representing
around 1.08 % of the national GDP, being higher
than the EU-average (0.77 %).
Figure 31: Environmental financing, needs and gaps
per Member State (% of GDP)
The following table provides the distributions of
Slovenia’s
environmental
investment
gap
(expressed in various forms) by environmental
objective.
Table 2: Summary of environmental investment
gaps in Slovenia per year, 2021–2027
Environmental
objective
Investment gap per year
Million
EUR
(2022
prices)
55
% of
total
% of
GDP
Pollution prevention
and control
8.8
0.09
(
143
)
The Connecting Europe Facility (Transport) also includes
EUR 11.3 billion transferred from the Cohesion Fund, of
which 30 % will be made available, on a competitive basis,
to all Member States eligible for the Cohesion Fund. The
remaining 70 % will respect the national envelopes until
31 December 2023.
(
144
)
(
145
)
The InvestEU Fund is set to mobilise over EUR 372 billion of
investment through an EU budget guarantee of
EUR 26.2 billion to back the investment of financial
partners such as the EIB group and others.
Eurostat,
’Environmental
protection
expenditure
accounts’, env_ac_epea.
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Circular economy and
waste
Water management
and water industries
Biodiversity and
ecosystems
Total
108
17.2
0.18
260
41.6
0.44
In Slovenia, the EU MFF provides an estimated 17 %
of the clean air financing (mostly via cohesion
policy), with a further 18 % from the RRF, adding up
to 35 % of the total. EIB loans reach 6 % of the total
and national sources 59 % .
The gap
To meet its environmental objectives concerning
pollution prevention and control (towards zero
pollution), Slovenia needs to provide an additional
EUR 55 million per year (0.09 % of GDP), mostly
related to clean air and noise. The adequate
implementation of the NECP with the investments
included for sustainable energy and transport would
largely deliver this, while in many Member States
additional measures and investments may be
required to comply with the ammonia reduction
requirements.
According to the latest (2023) NAPCP review
report (
149
), Slovenia complied with ammonia
reduction requirements in 2020 and 2021, and it is
not at risk of non-compliance with ammonia
concerning the NECD 2030 emission reduction
commitments, based on the policies and measures
in its NAPCP that take into account climate, energy
and CAP plans and financing baselines.
Circular economy and waste
Investment needs
Slovenia’s investment needs in circular economy and
waste reach EUR 357 million per year (including
baseline investments). Most of this, around
EUR 280 million per year, relates to circular
economy measures in the mobility, food and built
environment systems, with a further EUR 77 million
necessary for waste management (municipal and
packaging waste), covering waste collection,
biowaste treatment, recycling reprocessors, waste-
sorting facilities, and digitalisation of the waste
registry. The amount for waste excludes the
202
624
32.4
100.0
0.34
1.06
Source:
Directorate-General for Environment analysis.
Pollution prevention and control
Investment needs
In pollution prevention and control, Slovenia’s
investment needs are estimated to reach
EUR 403 million per year (including baseline
investments) in 2021–2027. Most of this,
EUR 352 million, relates to air pollution control, to
comply with the clean air requirements for the five
main air pollutants under the NECD by 2030. The
estimated needs to reduce environmental noise
reach EUR 90 million per year, most of which is
delivered by the (same) sustainable energy and
transport investments that also benefit clean
air (
146
).
Protection
from
radiation
costs
EUR 26 million a year, and industrial site
remediation an estimated EUR 11 million per year.
Microplastics pollution and the chemicals strategy
require around EUR 6–8 million per year (each) (
147
).
Current investments
The current investment levels supporting pollution
prevention and control reach an estimated
EUR 349 million per year in Slovenia in 2021–2027.
Most of the financing concerns clean air
(EUR 288 million per year). Protection from
environmental noise receives around EUR 86 million
per year, with a further EUR 12 million spent on site
remediation(
148
).
(
146
)
(
147
)
(
148
)
2021
Phenomena
project
assessment
(https://op.europa.eu/en/publication-detail/-
/publication/f4cd7465-a95d-11eb-9585-01aa75ed71a1)
and the Commission’s 2023 Environmental Noise Directive
implementation
report
(https://environment.ec.europa.eu/system/files/2023-
03/COM_2023_139_1_EN_ACT_part1_v3.pdf).
European Commission,
Third Clean Air Outlook,
Brussels,
2022,
https://environment.ec.europa.eu/topics/air/clean-
air-outlook_en.
See also the impact assessment for the
revision of the AAQD, available from the Commission web
page
on
the
proposed
revision
(https://environment.ec.europa.eu/publications/revision-
eu-ambient-air-quality-legislation_en).
Through the tracking of EU funds, EIB projects and national
expenditure (EPEA accounts, Eurostat). Note that the bulk
(
149
)
of clean air financing is provided as a contribution from
climate (energy and transport) measures, as per the
tracking schemes in the Common Provisions Regulation
Annex I and the RRF Regulation Annex VI. Further
information
on
clean
air
tracking:
https://commission.europa.eu/document/download/0a8
0484e-2409-4749-94c6-
3b23bc6bae8f_en?filename=Clean%20air%20methodolog
y_0.pdf
European Commission,
‘National air pollution control
programmes and projections’, European Commission
website,
https://environment.ec.europa.eu/topics/air/reducing-
emissions-air-pollutants/national-air-pollution-control-
programmes-and-projections_en.
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investments needed for the uptake of circularity and
waste prevention across the economy (
150
).
Current investments
Circular economy investments across the economy
reach around EUR 192 million per year in Slovenia in
2021-2027, with a further EUR 57 million provided
for waste management that does not constitute
circular economy.
Around 1.7 % of this combined financing for
circularity and waste comes from the EU MFF, with
a further 6.7 % contribution from the RRF. The share
of national sources is overwhelming, reaching 92 %
of the total financing (
151
).
The gap
To meet its environmental objectives concerning the
circular economy and waste, Slovenia needs to
increase circular economy investments by an
estimated EUR 88 million per year, with an
additional EUR 20 million concerning waste
management action, not belonging to circular
economy.
Combined,
this
amounts
to
EUR 108 million per year, representing 0.18 % of
Slovenia’s GDP.
Of the circular economy gap, EUR 23 million relates
to recent initiatives, such as the eco-design for
sustainable products, packaging and packaging
waste, labelling and digital tools, CRM recycling, and
measures proposed under the amendment of the
Waste Framework Directive, and EUR 65 million
constitutes further investment needed to unlock
Slovenia’s circular economy potential.
Water protection and management
Investment needs
The annual water investment needs reach an
estimated EUR 701 million (in 2022 prices) in
Slovenia. This comprises investment needs both for
the water industry and for the protection and
management of water. Of the total annual need,
EUR 211 million relates to the management of waste
water (also including additional costs associated
with the revised UWWTD). A further EUR 335 million
is necessary for drinking-water-related investments
and around EUR 152 million for the protection and
management of water (
152
).
Current investments
Water investments in Slovenia are estimated to be
around EUR 441 million per year (in 2022 prices) in
2021–2027. Of this, EUR 126 million supports
wastewater management, EUR 281 million drinking
water and around EUR 33 million the other aspects
of the Water Framework Directive (water
management and protection).
Of the total financing, 7.4 % is provided by the EU
MFF (mostly through cohesion policy), with a further
5.4 % from the RRF, reaching 12.7 % combined. The
bulk of financing comes from national sources
(87.3%) (
153
).
The gap
To meet the various environmental targets under
the Water Framework Directive and the Floods
Directive, Slovenia’s water investment gap reaches
EUR 260 million per year (0.44 % of GDP), with
EUR 85 million linked to wastewater measures.
Drinking water measures require an additional
EUR 54 million per year and the other aspects of the
Water Framework Directive around EUR 120 million
per year over the existing levels of financing.
Biodiversity and ecosystems
Investment needs
The investment needs for biodiversity and
ecosystems are estimated to be EUR 326 million per
year (in 2022 prices) in Slovenia in 2021–2027. This
includes the following financing needs:
•
Slovenia’s prioritised action framework (
154
)
investment-needs-and-financing-capacities-water-related-
investment-eu-member-states-2020-05-28_en;
and OECD,
Financing Water Supply, Sanitation and flood Protection:
Challenges in EU Member States and policy options,
OECD
Publishing,
Paris,
2020,
https://www.oecd-
ilibrary.org/environment/financing-water-supply-
sanitation-and-flood-protection_6893cdac-en.
Water investment levels are estimated through tracking EU
funds, EIB projects and national expenditure (EPEA
accounts, Eurostat).
European Commission, ‘Financing Natura 2000 –
Prioritised action frameworks’, European Commission
website,
https://environment.ec.europa.eu/topics/nature-and-
biodiversity/natura-2000/financing-natura-2000_en.
(
150
)
(
151
)
(
152
)
See Systemiq and Ellen MacArthur Foundation,
Achieving
‘Growth Within’,
2017; and European Commission:
Directorate-General for Environment,
Study on investment
needs in the waste sector and on the financing of municipal
waste management in Member States,
Publications Office
of the European Union, Luxembourg, 2019,
https://op.europa.eu/en/publication-detail/-
/publication/4d5f8355-bcad-11e9-9d01-01aa75ed71a1.
Waste management and circular economy expenditure
tracking in the EU funds, EIB projects and in the national
expenditure (Eurostat). Datasets: EPEA accounts (env_epi)
and circular economy private investments (cei_cie012).
See
European Commission, ‘Estimating investment needs
and financing capacities for water-related investment in EU
Member
States’,
28 May
2020,
https://commission.europa.eu/news/estimating-
(
153
)
(
154
)
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•
•
concerning the Natura 2000 areas:
EUR 85.9 million per year, mostly running
costs;
additional BDS costs (
155
): EUR 156.5 million
per year on top of the framework;
sustainable soil strategy management (
156
)
costs: EUR 83.5 million per year.
Figure 32: 2021–2027 contributions to biodiversity
from the main EU instruments per Member State
(% of policy total)
Current investments
The current level of biodiversity financing is
estimated to be EUR 124 million per year (in 2022
prices) in 2021–2027. 71.1 % of this is considered
direct financing to biodiversity and ecosystems, with
a 100 % coefficient in the tracking schemes.
15.5 % of the total financing is estimated to come
from EU cohesion policy, 38.6 % from CAP, 4.7 %
from Horizon Europe, around 1.8 % from LIFE and
0.7 % from EMFAF. The EU MFF altogether accounts
for 62 % of the financing and the RRF for 10.4 %,
adding up to a total of 72.4 % from the EU budget.
The rest, 27.6 %, comes from national sources (
157
).
Slovenia has dedicated relatively high shares of
funds under the RRF (4.4 %) to biodiversity, as well
as under CAP (21.5 %) and under its cohesion policy
EU contribution amounts (7.4 %, disregarding ESF+)
in 2021–2027
–
all well above the EU average (see
Figure 32).
NB: ESF+, European Social Fund Plus.
The gap
To meet the environmental objectives concerning
the protection and restoration of biodiversity and
ecosystems and other relevant cross-cutting
measures, Slovenia’s investment gap is estimated to
be around EUR 202 million per year, corresponding
to 0.34 % of its GDP.
Public financial management
Green budgeting practices
Green budgeting refers to the use of budgetary tools
to achieve climate and environmental goals. Some
Member States already use green budgeting tools
for identifying and tracking green expenditures
and/or revenues (
158
). Green budgeting practices
provide
increased
transparency
on
the
environmental implications of budgetary policies.
The Commission has developed a non-mandatory
green budgeting reference framework that brings
together methodologies for assessing the impacts of
budgets on climate and environmental goals (
159
).
To help Member States to develop national green
budgeting and thereby improve policy coherence
(
155
)
(
156
)
(
157
)
European
Commission:
Directorate-General
for
Environment,
Biodiversity Financing and Tracking
–
Final
report,
Publications Office of the European Union,
Luxembourg, 2022,
https://op.europa.eu/en/publication-
detail/-/publication/793eb6ec-dbd6-11ec-a534-
01aa75ed71a1/language-en.
Proposal for a directive of the European Parliament and of
the Council on soil monitoring and resilience (Soil
Monitoring Law) COM(2023) 416 final of 5 July 2023,
https://environment.ec.europa.eu/publications/proposal-
directive-soil-monitoring-and-resilience_en.
Based on biodiversity tracking in the EU budget
(https://circabc.europa.eu/ui/group/3f466d71-92a7-
49eb-9c63-6cb0fadf29dc/library/8e44293a-d97f-496d-
8769-50365780acde),
and national expenditure on
(
158
)
(
159
)
biodiversity from the Classification of the Functions of
Government accounts.
European Commission, Green Budgeting in the EU. Key
Insights from the 2023 European Commission Survey of
Green Budgeting Practices, 2023,
https://economy-
finance.ec.europa.eu/economic-and-fiscal-
governance/national-fiscal-frameworks-eu-member-
states/green-budgeting-
eu_en#:~:text=European%20Commission%20Green%20B
udgeting%20Survey%C2%A0.
European Commission,
‘European Union green budgeting
reference
framework’,
2022,
https://economy-
finance.ec.europa.eu/economic-and-fiscal-
governance/green-budgeting-eu_en.
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and support the green transition, the Commission
facilitated a technical support instrument (TSI)
project on green budgeting from 2021 to 2024 (
160
).
Slovenia participated and introduced a national
green budgeting methodology according to which,
projects financed through the national budget are
evaluated with respect to their impact on the six
environmental objectives of the EU taxonomy.
Slovenia has also been selected for the next round of
TSI projects on green budgeting, starting in 2025,
where the country will expand peer-to-peer learning
through
civil servants’ exchanges.
Beyond green budgeting, to improve policy
outcomes, the Commission has also drawn up
climate-proofing
and
sustainability-proofing
161
guidance ( ), as tools to assess project eligibility
and compliance with environmental legislation and
criteria.
Green taxation and tax reform
Total environmental taxes
amounted to
EUR 1.6 billion in Slovenia in 2022, representing
2.9 % of its GDP (EU average: 2.0 %). Energy taxes
formed the largest component of environmental
taxes, accounting for 2.4 % of GDP, which is higher
than the EU average of 1.6 %. Transport taxes, at
0.4 % of GDP, were around the EU average (0.4 %),
while taxes on pollution and resources, at 0.1 %,
were slightly above the EU middle value (EU
average: 0.08 %). In 2022, environmental taxes in
Slovenia accounted for 7.6 % of total revenues from
taxes and social security contributions (above the EU
average of 5.0 %) (
162
).
Figure 33: Environmental taxes per Member State,
2022
The EU Green Deal emphasises the role of well-
designed tax reforms (e.g. shifts from taxing labour
to taxing pollution) to boost economic growth and
resilience, and to foster a fairer society and a just
transition through the right price signals. The Green
Deal promotes the
‘polluter-pays
principle’, which
makes polluters bear the costs to prevent, control
and remedy pollution.
According to a 2024 study (
163
), Slovenia applies
environmental taxes used to discourage
environmentally harmful activities and behaviours in
the fields of air, waste, water and mineral extraction.
Green bonds and sustainable bonds
In 2023, the total value of green bonds issued by
Member
States
was
USD 245 billion
(EUR 227 billion),
up
from
USD 234 billion
164
(EUR 198 billion) in 2021( ).
During 2014–2023, 83 % of the green bonds issued
by European countries (excluding supranational
entities) served objectives in energy, buildings or
transport, while 5 % supported objectives in water,
(
160
)
(
161
)
(
162
)
https://reform-support.ec.europa.eu/what-we-
do/revenue-administration-and-public-financial-
management/supporting-implementation-green-
budgeting-practices-eu_en.
Commission notice
–
Technical guidance on the climate
proofing of infrastructure in the period 2021–2027 (OJ
C 373,
16.09.2021,
p. 1),
https://op.europa.eu/en/publication-detail/-
/publication/23a24b21-16d0-11ec-b4fe-
01aa75ed71a1/language-en.
Eurostat, ‘Environmental
taxes accounts’, env_eta.
(
163
)
(
164
)
European
Commission:
Directorate-General
for
Environment,
Candidates for Taxing Environmental Bads at
National Level,
Publications Office of the European Union,
Luxembourg, 2024, ,
https://op.europa.eu/en/publication-
detail/-/publication/35c1bbdf-2931-11ef-9290-
01aa75ed71a1/language-en,
Annex 1.
Climate Bonds Initiative (www.climatebonds.net). NB.
Additionally (and not included in this), national sources
indicated EUR 544.8 million issuance for Croatia, in 2022-
2023, and a slightly higher amount for Slovenia (+0.27
billion) during 2021-2023 in total.
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5.1 % related to land use (with links to nature and
ecosystems) and 3.8 % to waste management. By
2023, the combined share of energy, buildings and
transport has decreased to 73 %, the share of waste
management and land use had increased (to 5.9 %
and 8.4 %, respectively) and the share of water had
remained around 5 %.
In 2021–2023, 31.7 % of the European green bonds
(excluding those issued by supranational bodies)
was issued by financial corporates, 29.1 % by
sovereign governments and 23.1 % by non-financial
corporates. 8.3 % of the issuances was linked to
government-backed entities, 6.4 % to development
banks and 1.4 % to local governments.
Between 2021 and January 2023, Slovenia issued
sustainability bonds for EUR 2.49 billion, with
EUR 765 million of the (total) proceeds going into
green projects.
Figure 34: Value of green bonds issued per Member
State (billion EUR), 2021, 2022 and 2023
budgets and make it difficult to achieve European
Green Deal objectives.
The overall downward trend of FFS mentioned in
past EIRs was disrupted from 2022, due to the
European response to the 2021 energy crisis and
subsequent increase in energy prices.
As a direct consequence, annual FFS in the EU have
increased to EUR 109 billion in 2023 from
EUR 57 billion in 2020. From 2021 to 2023, there was
a marked increase in annual FFS of 72 % in the
EU (
166
).
For the majority of the Member States (16), 2022
saw a peak in the amount of overall FFS. A decline
was then observed in 2023 (
167
). In particular, FFS for
coal and lignite, natural gas and oil increased in 2022
and a strong increase was observed for natural gas
subsidies.
In Slovenia, the energy subsidies were stable in
2015–2021, and only showed significant increases in
2022 and 2023, in line with the EU-wide
phenomenon. FFS were already very stable all
through the examined period, mostly at
EUR 0.1 billion per year, except only 2022, when
they increased to EUR 0.2 billion.
As a share of GDP, FFS in 2022 ranged from 1.8 % in
Croatia to less than 0.1 % in Denmark and Sweden.
Slovenia’s value reached 0.4 %, below the EU
average (0.8 %) (
168
).
Figure 35: Energy subsidies by energy carrier
(billion EUR), 2015–2023
Data source: Climatebonds.net, with some additional data from
national sources (e.g. Croatia, Slovenia).
Environmentally harmful subsidies
Addressing and phasing out environmentally
harmful subsidies, in particular fossil fuel subsidies
(FFS) is a further step towards achieving the eighth
environmental action programme objectives and the
enabling conditions (
165
). FFS are costly for public
(
165
)
(
166
)
Article 3(h) and 3(v) of the eighth environmental action
programme.
European Commission, 2024 Report on Energy Subsidies in
the European Union, COM(2025).
https://ec.europa.eu/transparency/documents-
register/detail?ref=COM(2025)17&lang=en.
NB: RES, renewable energy source.
(
167
)
(
168
)
16 Member States: BE, EE, IE, EL, ES, FR, HR, IT, CY, LT, HU,
NL, AT, PT, RO and SE.
European Commission, 2024 Report on Energy Subsidies in
the European Union, COM(2025).
https://ec.europa.eu/transparency/documents-
register/detail?ref=COM(2025)17&lang=en
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Source:
analysis of Directorate-General Energy
In the 2022 EIR, Slovenia received the following
priority actions.
•
Ensure an increased level of financing for the
environment to cover the investment needs
across the environmental objectives by closing
the investment gaps.
Scale up the biodiversity support under the new
cohesion policy and the common agricultural
policy to achieve the ambition set in the
interinstitutional agreement on the 2021–2027
MFF on biodiversity.
Ensure that cohesion policy and EAFRD funding
and LIFE programme funding complement each
other, especially as regards LIFE integrated
projects and actions certified with a
‘Seal
of
Excellence’.
Slovenia currently has a similar overall
environmental investment gap to that at the time of
the 2022 EIR (at around 1.1 % of GDP, above the EU
average), with most of it related to the water
objective and biodiversity.
•
2025 priority action
•
Use more national funding (for instance by
increasing taxes in favour of the environment
and reducing environmentally harmful
subsidies), EU funding and private funding to
help close the investment gap.
•
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6. Environmental governance
Information, public participation and access to
justice
Citizens can more effectively protect the environment if
they rely on the three
‘pillars’
of the Aarhus Convention:
(i) access to information, (ii) public participation in
decision-making and (iii) access to justice in environmental
matters. It is of crucial importance to public authorities,
the public and businesses that environmental information
is shared efficiently and effectively (
169
). Public
participation allows authorities to make decisions that
take public concerns into account. Access to justice is a set
of guarantees that allows citizens and NGOs to use
national courts to protect the environment, safeguard the
rights of citizens and ensure accountability of
authorities (
170
). It includes the right to bring legal
challenges (‘legal standing’) (
171
).
Environmental information
This section focuses on the implementation of the
Infrastructure for Spatial Information in the European
Community (Inspire) Directive. The Inspire Directive aims
to set up a European spatial-data infrastructure for sharing
environmental spatial information between public
authorities across Europe. It is expected that this will help
policymaking across boundaries and facilitate public
access to this information. Geographic information is
needed for good governance at all levels and should be
readily and transparently available.
Slovenia’s performance in implementing the Inspire
Directive is substantial and has been reviewed based on its
2023 country fiche (
172
) (see Table 3).
Table 3: Slovenia dashboard on the implementation of
the Inspire Directive, 2016–2023
2016
2023
Legend
Effective coordination and data
sharing
Ensure
effective
coordination
Data
sharing
without
obstacle
■
Implementation of
this provision is well
advanced or (nearly)
completed.
Outstanding issues are
minor and can be
addressed
easily.
Percentage > 89 %
■
■
■
■
Inspire performance indicators
(i)
Conformity
of metadata
(ii)
Conformity
of
spatial
datasets
(iii)
Accessibility of
spatial datasets
through view
and download
services
(iv)
Conformity
of
network
services
■
Implementation of
this provision has
started and made
some or substantial
progress but is still not
close
to
being
completed.
Percentage = 31–89 %
■
■
■
■
■
Implementation of
■
■
this provision is falling
significantly behind.
Serious efforts are
necessary to close the
implementation gap.
Percentage < 31 %
■
■
Source:
European Commission,
‘Slovenia’,
Inspire Knowledge Base,
https://knowledge-base.inspire.ec.europa.eu/slovenia_en.
Slovenia has made progress on the accessibility of spatial
data, but more efforts are needed to make spatial data
more widely accessible and prioritise the environmental
datasets (
173
). Hence, a priority action is proposed in 2025.
(
169
)
(
170
)
The Aarhus Convention (https://unece.org/environment-
policy/public-participation/aarhus-convention/text),
the Access
to Environmental Information Directive (Directive 2003/4/EC)
(https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX:32003L0004)
and the Inspire
Directive (Directive 2007/2/EC) (https://eur-lex.europa.eu/legal-
content/EN/ALL/?uri=CELEX:32007L0002)
together create a legal
foundation for the sharing of environmental information between
public authorities and with the public.
These guarantees are explained in the
European Commission’s
2017 notice on access to justice in environmental matters
(https://eur-lex.europa.eu/legal-
content/EN/ALL/?uri=CELEX:52017XC0818(02))
and a related
(
171
)
(
172
)
(
173
)
2018
citizen’s
guide
(https://op.europa.eu/en/publication-detail/-
/publication/2b362f0a-bfe4-11e8-99ee-
01aa75ed71a1/language-en/format-PDF).
This EIR focuses on the means used by Member States
to guarantee rights of access to justice and legal
standing and to overcome other major barriers to
bringing cases on environmental protection.
European Commission,
‘Slovenia’,
INSPIRE knowledge
base,
https://knowledge-
base.inspire.ec.europa.eu/slovenia_en.
European Commission, List
of high value spatial data
sets.
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75.7 months (
177
). The duration of each step in an EIA
process (screening, scoping, EIA report, public
consultation, reasoned conclusion, development consent)
varies considerably between Member States and projects.
The available data for Slovenia show that on average EIA
procedures last around 7 months, which is faster than the
EU average of 20.6 months (
178
). Effective use of EU
procedures can positively influence the timely approval of
activities underpinning the decarbonisation of the
economy on the way to net zero by 2050.
A new report is not yet available on the application and
effectiveness of the SEA Directive in the EU. Nevertheless,
a support study has been published with information by
Member State (
179
).
Although there is good access to information and guidance
on public participation, there is little systematic
information on how public views are taken into account.
No aggregate data are published, and decisions in
individual cases do not indicate how public comments
have been taken into account.
Access to justice
Access to justice, guaranteed by Article 19(1) of the Treaty
on European Union and Article 47 of the EU Charter of
Fundamental Rights, is a fundamental right and part of the
democratic process. It is vital to ensure the full application
of EU law in all Member States and the legal protection of
the rights of individuals, including in environmental
matters. Access to justice is essential to enable judicial
review of the decisions of public authorities and to allow
the correction of any wrongdoing committed by these
authorities.
This section provides a snapshot of the state of play of
access to courts by the public, particularly when it comes
to challenging plans, or the non-adoption of plans, under
EU law, in the areas of water, waste, air quality and noise,
irrespective of the form of the legal act (i.e. regulatory act
or administrative decision).
Public participation
Public involvement at both the planning and the project
phase maximises transparency and social acceptance of
programmes and projects. Consultation with the public
(including NGOs) and environmental, local and regional
authorities is a key feature of an effective impact
assessment procedure. Such consultation also provides an
opportunity for public authorities and project promoters
to engage with the public actively and meaningfully by
making information on the likely significant effects widely
available. If carried out with due diligence and taking into
consideration useful public input, this process leads to
better-informed decision-making and can promote public
acceptance. Making information available increases
stakeholder involvement, thus lessening resistance and
preventing (or minimising) litigation. On the other hand, it
is paramount that the procedure is effective.
This section examines how public involvement and
transparency are ensured under two instruments, namely
the Environmental Impact Assessment (EIA) Directive (
174
)
and the Strategic Environmental Assessment (SEA)
Directive (
175
).
EU law provides for a flexible framework concerning EIAs.
The aim of this framework is to ensure the application of
the necessary environmental safeguards, while enabling
speedy approval of projects. The Commission has
contributed to simplifying and accelerating permitting for
renewable energy projects and continues to support the
Member States in this regard(
176
). Slovenia has already
taken steps aiming to accelerate permit-issuing
procedures taking advantages of the broad flexibilities
offered by the EU legal framework, such as the
establishment of a single point of support for investors,
accelerated short deadlines for issuing permits for
renewable energy projects and the removal of regulatory
barriers.
The average speed in the EU for issuing permits involving
an EIA procedure is 20.6 months, with a minimum
duration of 11.4 months and a maximum duration of
(
174
)
Directive 2011/92/EU of the European Parliament and of the
Council of 13 December 2011 on the assessment of the effects of
certain public and private projects on the environment (OJ L 26,
28.1.2012,
p. 1),
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A32011L0092.
Directive 2001/42/EC of the European Parliament and of the
Council of 27 June 2001 on the assessment of the effects of certain
plans and programmes on the environment (OJ L 197, 21.7.2001,
p. 30),
https://eur-lex.europa.eu/legal-
content/EN/ALL/?uri=CELEX:32001L0042.
Commission Staff Working Document (SWD/2022/0149 final), 18
May
2022,
(https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A52022SC0149&qid=1653034229
953).
(
177
)
(
175
)
(
178
)
(
176
)
(
179
)
European Commission: Directorate-General for Environment,
Collection of information and data on the implementation of the
revised Environmental Impact Assessment (EIA) Directive
(2011/92/EU) as amended by 2014/52/EU),
Publications Office of
the European Union, Luxembourg, 2024, Tables 5 and 6,
https://op.europa.eu/en/publication-detail/-
/publication/8349a857-2936-11ef-9290-01aa75ed71a1/.
The screening process for solar power plants is generally slower
than for other renewable energy technologies and can take up to
22 months. Note also that the EIA study has no data on the time
taken to reach a reasoned conclusion or development consent.
European Commission: Directorate-General for Environment,
Lundberg, P., McNeill, A., McGuinn, J., Cantarelli, A. et al.,
Study
supporting the preparation of the report on the application and
effectiveness of the SEA Directive (Directive 2001/42/EC)
–
Final
study,
Publications Office of the European Union, 2025,
https://data.europa.eu/doi/10.2779/1615072
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The Slovenian legal system does not provide for adequate
access to justice in environmental matters as laid out in
the Commission notice from 2017 (
180
). There is no direct
way to obtain an administrative review or challenge a final
decision about a plan/programme (nature conservation,
water, noise or waste management) before a court.
In July 2024, the Commission started an infringement (
181
)
procedure against Slovenia for failing to fully implement
the requirements of the Convention on access to
information, public participation in decision-making and
access to justice in environmental matters (Aarhus
Convention). This is about the ability of the public
concerned to request a review of plans and programmes
by a national court, particularly for cases concerning
water, nature and air quality. Slovenia should fully comply
with the requirements of the Aarhus Convention.
In 2022 Slovenia received the priority actions to (i) better
inform the public about their right to access to justice, in
particular by referring to the Commission e-justice
factsheets on access to justice in environmental matters
on national judicial and administrative portals (
182
) and (ii)
improve access to courts by the public concerned when it
comes to challenging administrative or regulatory
decisions, in particular as regards plans and programmes.
There has been no progress on the first priority action, as
currently only the Environmental Defenders website (
183
)
offers useful information. On the second priority action
there has been some progress.
Nonetheless, Slovenia still does not provide for adequate
access to justice beyond implementing directives with
sectoral provisions, such as the EIA Directive.
Compliance assurance
Environmental compliance assurance covers all work
undertaken by public authorities to ensure that industries,
farmers and others fulfil their obligations to protect water,
air and nature, to manage waste (
185
) and to remedy any
environmental damage. It includes measures such as (i)
compliance promotion, (ii) compliance monitoring, i.e.
inspections and other checks, (iii) enforcement, that is,
steps taken to stop breaches and impose sanctions, and
(iv) ensuring damage prevention and remediation in line
with the polluter-pays principle.
Compliance promotion, monitoring and enforcement
Non-compliance with environmental obligations may
occur for different reasons, including poor understanding
or lack of acceptance of the rules, opportunism or even
criminality. Compliance promotion activities help duty-
holders to comply by providing information, guidance and
other support. This is particularly important in areas
where new and complex legislation is put in place.
When inspections and other control activities identify
problems, a range of responses may be appropriate,
including the use of administrative and criminal
enforcement tools.
While detailed statistical tools for tracking environmental
crime have not significantly advanced since the 2022 EIR,
the State Prosecution Office’s annual reports continue to
provide aggregated data on various types of criminal
cases, including environmental crimes (
186
). The State
Prosecution Office and the Slovenian Inspectorate for the
Environment provide resources and occasional statistical
data summaries on their official sites and annual reports.
In November 2023, a regional conference dedicated to
strengthening the fight against crime affecting the
environment was held, which representatives from
Albania, Bosnia and Herzegovina, Bulgaria, Croatia,
France, Greece, Kosovo, Montenegro, North Macedonia,
Serbia, Slovakia, Slovenia, Poland and Romania
attended(
187
).
The 2022 EIR recommended that Slovenia (i) improve the
availability of online material for duty-holders, such as
2025 priority actions
•
Make spatial data more widely accessible and
prioritise environmental datasets in implementing
the Inspire Directive, especially those identified as
high-value spatial datasets for implementing
environmental legislation (
184
).
Improve access to courts in national environmental
cases by the public concerned and eliminate practical
barriers, such as length of proceedings and excessive
costs in some Member States.
•
(
180
)
(
181
)
(
182
)
(
183
)
Commission notice on access to justice in environmental matters,
C/2017/2616 of 18 August 2017 (OJ C 275, 18.8.2017, p. 1),
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=oj:JOC_2017_275_R_0001.
INFR(2024)2051.
European Union,
Access to justice in environmental matters’,
European
Union
website,
https://e-
justice.europa.eu/content_access_to_justice_in_environmental_
matters-300-en.do.
The network
Environmental defenders - Zagovorniki okolja |
varstvo okolja, varstvo prostora
(
184
)
(
185
)
(
186
)
(
187
)
European Commission, List
of high value spatial data sets.
The concept is explained in detail in the European Commission’s
2018 communication on EU actions to improve environmental
compliance and governance (https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A52018DC0010)
and the related
Commission
staff
working
document
(https://eur-
lex.europa.eu/legal-
content/EN/TXT/PDF/?uri=CELEX:52018SC0010).
https://www.dt-rs.si/letna-porocila.
https://www.selec.org/strengthening-the-fight-against-crimes-
that-affect-the-environment-in-southeast-europe/
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farmers and land managers, on practical steps to
implement legislation that protects nature, and improve
the visibility of information on the implementation of the
Nitrates Directive and (ii) improve the public availability of
information, for example on environmental inspections
and on the prosecution of environmental crimes.
Concerning compliance promotion, monitoring and
criminal and administrative enforcement, the 2022
priority actions are not assessed here due to a lack of
systematic information. Similarly, the Commission is not
aware of whether information is easily available online at
the national level for farmers regarding compliance with
the Nitrates and Nature Directives, and hence the related
2022 priority action is not assessed.
The new EU Environmental Crime Directive
The EU has recently strengthened its legal framework on
tackling the most serious breaches of environmental
obligations, notably by the adoption of the new
Environmental Crime Directive (ECD) (2024/1203/EU)
(188)
and new sectoral legislation with stronger
provisions on compliance monitoring, enforcement and
penalties. Issues important for the transposition and the
implementation of the relevant new instruments are
highlighted below; a detailed assessment of these topics
will be included in the next EIR once more implementation
measures are put in place and more systematic
information is available.
The new ECD replaced the 2008 ECD and introduced
several new offence categories, such as unlawful ship
recycling, unlawful water abstraction, and serious
breaches of EU legislation on chemicals, mercury,
fluorinated GHG and IAS of EU concern. It also covered the
establishment of qualified offences, subject to more
severe penalties where one of the offences defined in the
directive leads to serious widespread and substantial
damage or destruction of the environment. Concrete
provisions on the types and levels of penalties for natural
and legal persons who commit an offence were also
introduced. Other provisions will help considerably to
improve the effectiveness in combating environmental
crime of all actors along the enforcement chain. These
include obligations to ensure adequate resources and
investigative tools, specialised regular training and the
establishment of cooperation mechanisms within and
between Member States as well as national strategies on
combating environmental crime.
Member States are required to transpose the new ECD
into national law by 21 May 2026 and to take additional
measures to more effectively combat environmental
crime, in particular through training, coordination,
cooperation and strategic approaches. The Commission
will provide support, including by facilitating the
identification and sharing of good practices. Member
States are expected to ensure the necessary resources and
specialised skills required and they are invited to
encourage their authorities to support and cooperate with
the recognised EU-level networks of environmental
enforcement practitioners, such as the EU Network for the
Implementation and Enforcement of Environmental
Law (
189
), EnviCrimeNet (
190
), the European Network of
Prosecutors for the Environment (
191
) and the EU Forum of
Judges for the Environment (
192
). The European Union
Agency for Law Enforcement and European Union Agency
for Criminal Justice Cooperation mechanisms for
cooperation on cross-border cases should be used more
systematically for environmental offences.
Environmental Liability Directive
The Environmental Liability Directive (ELD)(
193
) aims to
ensure that environmental damage is remediated in kind
at the expense of those who have caused it, in line with
the polluter-pays principle. It helps to halt the net loss in
biodiversity, as well as reducing the number of
contaminated sites and protecting the environmental
quality of groundwater and surface waters. The ELD is a
cross-cutting tool and a key enabler for better
implementation of EU environmental law.
The ELD addresses cases of significant environmental
damage to protected species and natural habitats, and,
when caused by operators carrying out certain potentially
hazardous activities, also damages to water and to soil.
The Commission has the legal obligation to periodically
evaluate the ELD. The ELD has undergone the second
evaluation (
194
), which will be finalised in 2025, and which
was supported by an external study (
195
), containing,
(
188
)
(
189
)
(
190
)
(
191
)
(
192
)
Directive 2024/1203/EU on the protection of the environment
through
criminal
law
(https://eur-
lex.europa.eu/eli/dir/2024/1203/oj/eng
),
https://www.impel.eu/en.
LIFE+SATEC
project
(https://webgate.ec.europa.eu/life/publicWebsite/project/LIFE2
0-PRE-ES-000001/fight-against-environmental-crime-at-a-
strategic-level-through-the-strengthening-of-envicrimenet-
network-of-experts-in-environmental-criminal-investigations).
https://www.environmentalprosecutors.eu.
https://www.eufje.org/index.php?lang=en.
(
193
)
(
194
)
(
195
)
Directive 2004/35/EC on environmental liability with regard to the
prevention and remedying of environmental damage (https://eur-
lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A02004L0035-20190626).
Commission staff working document - Evaluation of the
Environmental Liability Directive, forthcoming 2025.
European Commission: Directorate-General for Environment and
Fogleman, V.,
Study in support of the evaluation of the
Environmental Liability Directive and its implementation
–
Final
report,
Publications Office of the European Union, Luxembourg,
2024,
https://op.europa.eu/en/publication-detail/-
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among other things, evidence, views, reports and other
relevant information gathered from different stakeholder
groups, including Member States.
One of the most relevant indicators in assessing
implementation and enforcement of the ELD is the
number of environmental damage cases handled under
the ELD, especially when this number is compared with
the previous reporting period. Fewer ELD cases were
reported in the second reporting period (2013–2022) than
in the first one (2007–2013). However, the downward
tendency in the number of ELD occurrences and their
overall low number do not necessarily mean that the ELD
has achieved its objectives, as it needs to be compared
with the overall number of environmental damage cases,
some of which may have been handled under the other
liability instruments.
The ELD has not always been effective in ensuring that the
polluter pays, because the liable operators often lack
financial capacity to carry out remediation measures.
While the ELD does not provide for a mandatory financial
security system, it explicitly calls for Member States to
encourage the development of financial security
instruments and markets, with the aim of enabling
operators to use financial guarantees to cover their
responsibilities under this directive.
From 1 May 2013 to 31 December 2021, Slovenia reported
one occurrence of an imminent threat (water damage
case) and four occurrences of environmental damage
under the ELD (one water and biodiversity damage case,
one land, water and biodiversity damage case, one
biodiversity damage case and one water damage case).
The report stated that, in 2019 alone, 12 potential ELD
occurrences were assessed; eventually it was determined
that 8 of them were not ELD occurrences. In the first
reporting period, no environmental damage occurrences
were reported under the ELD.
Slovenia has not introduced mandatory financial security
for ELD liabilities. Environmental insurance policies are not
generally available. Moreover, environmental extensions
to general liability policies are not generally available and,
even when available, they provide cover only for
remediating off-site pollution from a sudden and
accidental incident on an insured party’s site, without
providing cover for ELD liabilities unless non-ELD
legislation imposes liability for remediating land/soil
pollution from a sudden and accidental incident and the
liability overlaps with liability for remediating land damage
under the ELD.
The 2022 EIR in relation to the ELD recommended that
Slovenia establishes an online register of ELD cases and
other instances of environmental damage, providing
information on damages and costs available to the public.
Slovenia has made some progress in establishing an online
register of ELD cases.
2025 priority action
•
Encourage the use of training programmes provided
by the Commission (or developed at the national
level) covering the ELD and its interaction with the
other national liability-related instruments, to ensure
more efficient ELD implementation, improve the
expertise of the competent authorities and raise
awareness among all stakeholder groups.
EU-supported environmental capacity building
The Commission’s 2023 Compact (
196
) initiative to enhance
the administrative space identifies the capacity to lead the
green transition as one of three key pillars, along with the
public administration skills agenda and the capacity for
Europe’s Digital Decade. Compact also recognises the role
of the EIR reporting tool in improving environmental
governance. The two main capacity-building opportunities
for the environment provided by the European
Commission are the TSI (
197
) and the TAIEX-EIR PEER 2
PEER tool (
198
). The technical assistance available through
the cohesion policy is subject to shared management and
is not dealt with in this subsection.
The Commission’s technical support instrument
The TSI provides Member States with tailor-made
technical expertise on the design and implementation of
reforms. The support is demand driven and does not
require national co-financing.
The TSI had annual calls in 2021, 2022, 2023, 2024 and
2025. The following environment-related projects have
been selected in Slovenia:
•
Upgrading and improving the RRF implementation
system in Slovenia,
Office for Recovery and Resilience
of Slovenia
(2023);
/publication/006d90e5-980a-11ef-a130-
01aa75ed71a1/language-en.
(
196
)
See the European Commission web page on Compact
(https://reform-support.ec.europa.eu/public-administration-and-
governance-coordination/enhancing-european-administrative-
space-compact_en).
(
197
)
(
198
)
See the European Commission web page on the TSI
(https://commission.europa.eu/funding-tenders/find-
funding/eu-funding-programmes/technical-support-
instrument/technical-support-instrument-tsi_en).
See the European Commission web page on the TAIEX-EIR PEER 2
PEER
tool
(https://environment.ec.europa.eu/law-and-
governance/environmental-implementation-review/peer-2-
peer_en).
TAIEX: Technical Assistance and Information Exchange.
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•
Integration of environmental dimensions in public
finances
–
implementing the
‘do
no significant harm’
(DNSH) principle in public funding programme,
Office
for Recovery and Resilience of Slovenia
(2023);
Capacity building in the Czech Republic, Saxony
(Germany) and Slovenia for wildfire prevention and
risk assessment,
Ministry of Defence
–
Administration
for Civil Protection and Disaster Relief
(2023);
Review of Slovenian industrial strategy 2021–2030 for
green, creative and smart development
–
Industrial
ecosystems, Ministry of Economic Development and
Technology (2023).
Implementing Effective Green Budgeting Practices,
Revenue Administration and Public Financial
Management, Ministry of Finance (2025).
The Commission’s TAIEX-EIR PEER 2 PEER tool
The Commission launched the TAIEX-EIR PEER 2 PEER tool
in 2017. It aims to facilitate peer-to-peer learning among
Member States’ environmental authorities through
workshops (single or multi-country), expert missions
(where a delegation of experts travels to the requesting
institution) and study visits (where a delegation from the
requesting institution travels to a host country). Flagship
multi-country workshops are those requested by the
European Commission to present new and upcoming
environmental legislation and policy in all Member
States (
199
).
Workshops involving Slovenia are as follows:
•
•
•
•
•
New aspects in the cross-border cooperation against
environmental crime (19–20 November 2024);
Measures to reduce air pollution in transport and
residential energy (11–13 June 2024);
Circular public procurement and circular public
investments (7–8 November 2023);
Future challenges in air protection in Europe
(24 November 2022);
Climate adaptation and blue infrastructures:
Examples across European regions (30 May–1 June
2022);
•
•
•
2025 priority action
•
Improve overall national environmental governance,
in particular administrative capacity to support the
green transition and coordination at the regional and
local levels.
(
199
)
flagship multi-country workshops in the reporting period
are: Recast Drinking
Water Directive (3 April 2025);
Environmental compliance and governance (18 March 2025);
Planning of Renewable Energy Projects (20 February 2025); Air
Quality: Implementation of the revised Air Quality Directive (16
January 2025); Industrial Safety: awareness raising of emerging
risks linked with climate change and decarbonation (12 December
2024); Air quality: implementation of the NEC Directive to further
mainstream air and broader pollution reduction in agricultural
policy (25 September 2024); Industrial emissions transposition
and implementation of the revised Directive (12 September
2024);
Noise: progress towards meeting Member States’ noise
limit values and EU reduction targets (5 June 2024); Best practice
uses of environmental footprint methods on the EU market (30
May 2024); Sustainable finance (9 November 2023); Textile waste
separate collection, treatment and markets (3 October 2023); EU
environmental funding and support (13 June 2023); Advisory
service for businesses to go circular (24 April 2023); Digital
product passport implementation (6 December 2022); Public
involvement in planning and approval of renewable energy
projects (17 November 2022); Environmental compliance and
governance (14 November 2022); Biowaste management (19-20
September 2022); Renewable energy projects: permitting granting
processes (13 June 2022). N.B. the first flagship workshop on
Zero Pollution for Air, Water and Soil, took place 9 February 2022.
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Annex
2025 priority actions
Circular economy and waste management
Transitioning to a circular economy
•
•
•
•
•
•
Develop a unified circular economy strategy focusing on waste prevention and resource efficiency,
especially for priority waste streams.
Adopt measures to increase the circular material use rate.
Waste management
Invest in waste prevention measures to reduce the total amount of waste generated, which has
increased over the last 12 years.
Increase the collection and recycling rate of waste electronic and electric equipment (WEEE).
Introduce the deposit and return system(-s) (DRS), as mandated by the new Packaging and Packaging
Waste Regulation, to capture more recyclable materials and improve the quality of recyclates.
Ensure the achievement of the 2025 waste targets, following the recommendations made by the
Commission in the early warning reports where applicable.
Biodiversity and natural capital
Nature protection and restoration
–
Natura 2000
•
•
Finalise the establishment of site-specific conservation objectives and measures for all Natura 2000
sites (including by adopting their management plans) and ensure their effective implementation.
Ensure the effective implementation of Natura 2000 management plans and sufficient administrative
capacity and financing both for Natura 2000 and the implementation of the Nature Restoration
Regulation. Ensure implementation of Prioritised Actions Framework 2021-2027 (PAFs). Recovery of
species
Recovery of species
•
•
Strengthen the integration of biodiversity actions into other policies, e.g. energy, agriculture,
fisheries, forestry, urban and infrastructure planning and sustainable tourism, and promote
communication between stakeholders.
Reinforce action for habitats and species in unfavourable conservation status, for example through
restoration measures, increased connectivity, better policy coordination and integration, and
increased funding.
Recovery of ecosystems
Agricultural ecosystems
•
Implement eco-schemes and agri-environmental measures and practices to address the
environmental needs of Slovenia.
Marine
ecosystems
•
Report updates on the assessment of the state of Slovenia’s marine waters, its targets and its
determinations of GES, which are expected to include any threshold values for the descriptors in the
MSFD that may have been established in cooperation with other Member States at the EU or
regional level.
Prevention and management of invasive alien species
•
•
Step up implementation of the IAS Regulation, including with regard to enforcement and the
capacity of inspection authorities.
Ratify the International Convention for the Control and Management of Ships’ Ballast Water and
Sediments of 2004 (BWM Convention).
Ecosystem assessment and accounting
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•
•
Support the development of the national business and biodiversity network.
Ratify the Nagoya Protocol on Access to Genetic Resources and the Fair and Equitable Sharing of
Benefits Arising from their Utilization to the Convention on Biological Diversity.
Zero pollution
Clean air
•
•
As part of the NAPCP, take action to reduce emissions of air pollutants.
Ensure full compliance with the current AAQD standards, also in light of future stricter requirements
under the revised AAQD.
Industrial emissions
•
•
•
•
•
Reduce industrial air pollution damage and intensity.
Engage with industry and environmental NGOs to ensure proper contribution to and implementation
of BAT conclusions and ensure timely updates to permits following the publication of BAT
conclusions.
Ensure effective public participation and access to justice in relation to the IED.
Noise
Complete noise mapping.
Complete and implement action plans on noise management.
Water quality and management
Water
Framework
Directive
•
Ensure periodic reviews of permits for discharges, abstractions and other water uses, including
hydropower pressures.
Flood
Directive
•
FRMPs should provide details on how the FHRMs were used in the choice of measures and how to
consider pluvial flooding.
•
Better explain the choice and implementation of flood prevention and protection measures
(prioritisation, monitoring, costs of measures).
•
Improve public consultation and stakeholder involvement
Nitrate
Directive
•
Tackle nutrient pollution, especially nitrates from agriculture, through the implementation of the
Nitrates Directive.
Urban
Wastewater
Treatment Directive
•
Take the necessary measures to ensure full implementation of the current UWWTD, taking into
account the new requirements of the recast directive.
Chemicals
•
•
•
Upgrade the administrative capacities in implementation and enforcement to move towards a policy
of zero tolerance of non-compliance.
Increase involvement in the activities of the Forum for Exchange of Information on Enforcement of
the European Chemicals Agency, including in the coordinated enforcement projects, called REFs.
Increase customs checks and checks of products sold online with regard to compliance with chemicals
legislation.
Climate action
•
Implement all polices and measures that are needed to achieve targets laid down in the Effort
Sharing Regulation (ESR) and the Land Use and Land-Use Change and Forestry (LULUCF) regulation.
More detailed priority actions are set out in the assessment of the final National Energy and Climate
plan (NECP).
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Financing
•
Use more national funding (for instance by increasing taxes in favour of the environment and
reducing environmentally harmful subsidies), EU funding and private funding to help close the
investment gap.
Environmental governance
Information,
public
participation and access to justice
•
Make spatial data more widely accessible and prioritise environmental datasets in implementing the
Inspire Directive, especially those identified as high-value spatial datasets for implementing
environmental legislation
•
Improve access to courts in national environmental cases by the public concerned and eliminate
practical barriers, such as length of proceedings and excessive costs in some Member States.
Environmental
Liability Directive
•
Encourage the use of training programmes provided by the Commission (or developed at the
national level) covering the ELD and its interaction with the other national liability-related
instruments, to ensure more efficient ELD implementation, improve the expertise of the competent
authorities and raise awareness among all stakeholder groups.
Compliance assurance
•
Improve overall national environmental governance, in particular administrative capacity to support
the green transition and coordination at the regional and local levels.
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