COMMISSION STAFF WORKING DOCUMENT 2024 Rule of Law Report Country Chapter on the rule of law situation in Slovakia 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 2024 Rule of Law Report The rule of law situation in the European Union
Date: 2024-07-24
Institutions: European Commission, Secretariat-General
Subjects: Slovakia, administrative transparency, corruption, democracy, freedom of the press, independence of the judiciary, infringement of EU law, pluralism in the media, rule of law, whistleblowing

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 24.7.2024  SWD(2024) 825 final  COMMISSION STAFF WORKING DOCUMENT 2024 Rule of Law Report        Country Chapter on the rule of law situation in Slovakia     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 2024 Rule of Law Report        The rule of law situation in the European Union     {COM(2024) 800 final} - {SWD(2024) 801 final} - {SWD(2024) 802 final} - {SWD(2024) 803 final} - {SWD(2024) 804 final} - {SWD(2024) 805 final} - {SWD(2024) 806 final} - {SWD(2024) 807 final} - {SWD(2024) 808 final} - {SWD(2024) 809 final} - {SWD(2024) 810 final} - {SWD(2024) 811 final} - {SWD(2024) 812 final} - {SWD(2024) 813 final} - {SWD(2024) 814 final} - {SWD(2024) 815 final} - {SWD(2024) 816 final} - {SWD(2024) 817 final} - {SWD(2024) 818 final} - {SWD(2024) 819 final} - {SWD(2024) 820 final} - {SWD(2024) 821 final} - {SWD(2024) 822 final} - {SWD(2024) 823 final} - {SWD(2024) 824 final} - {SWD(2024) 826 final} - {SWD(2024) 827 final} - {SWD(2024) 828 final} - {SWD(2024) 829 final} - {SWD(2024) 830 final} - {SWD(2024) 831 final}  
 
 
ABSTRACT 

The Parliament passed a criminal law reform and dissolved the Special Prosecutor’s Office, in 
a fast-track legislative procedure and without appropriate consultation, raising serious concerns 
on  the  process  and  content  of  the  reform.  In  February  2024,  the  Constitutional  Court 
temporarily suspended parts of the reform, which was further amended in another fast-track 
legislative procedure in July 2024. There was no progress on the introduction of safeguards for 
the  dismissal  of  the  members  of  the  Judicial  Council,  and  the  Government  dismissed  three 
members before the end of their terms. The amendments to the Criminal Procedure Code raise 
additional  concerns  as  regards  the  crime  of  ‘abuse  of  law’.  Statements  of  Government 
representatives  targeting  certain  judges  raise  criticism  for  interference  with  the  judicial 
independence. Under the reformed judicial map, courts are generally operating well, including 
the separate system of administrative courts. Amendments to increase access to free legal aid 
are  under  preparation.  The  level  of  digitalisation  of  the  justice  system  is  advanced  but  the 
development of a new digital court management system faces setbacks. 

A  new  National  Anti-Corruption  Strategy  for  the  years  2024-2029  is  under  preparation. 
However,  the  criminal  law  reform  raises  specific  concerns  as  regards  the  fight  against 
corruption  and  in  particular  high-level  corruption,  as  well  as  the  protection  of  the  financial 
interests  of  the  Union.  The  dissolution  of  the  Department  for  Corruption  Prevention  of  the 
Office  of  the  Government  and  of  the  Special  Prosecutor’s  Office,  as  well  as  the  envisaged 
reorganisation of the National Crime Agency affect Slovakia’s institutions specialised in the 
overall  coordination,  monitoring,  detection,  investigation  and  prosecution  of  high-level 
corruption.  Instead  of  addressing  concerns  by  limiting  the  use  of  the  Prosecutor-General’s 
discretion  to  annul  investigations  for  high-level  corruption  cases,  the  control  powers  of  the 
Prosecutor-General  Office  over  high-level  corruption  investigations  and  prosecutions  were 
increased. Taken together, these changes risk affecting Slovakia’s ability to effectively pursue 
high-level corruption cases. The new Government committed to propose lobbying legislation 
and to strengthen conflict of interest and the asset declaration system.  

A legal framework and autonomous budget permit the Council for Media Services to operate 
autonomously. The Media Services Act and Publications Act jointly ensure transparency of 
media ownership. There has been no progress to enhance the autonomy of public service media 
as  the  new  Act  regulating  public  service  media  dissolved  the  current  broadcaster  and 
established a new entity leading to  concerns on the future independence of the broadcaster. 
Despite some progress with regard to mechanisms aimed at improving the safety of journalists, 
there are increasing concerns in relation to reported worsening of their working environment. 

There is a lack of progress in ensuring effective public consultation in the lawmaking process. 
Amendments  to  the  Competence  Act  widen  the  power  of  the  Government  to  appoint  and 
dismiss  heads  of  certain  independent  bodies.  The  National  Preventive  Mechanism  is  now 
functioning  under  the  Ombudsperson’s  office,  the  Commissioner  for  Children,  and  the 
Commissioner for Persons with Disabilities. The Slovak National Centre for Human Rights 
contributes with its projects to strengthening the rule of law culture. Initiatives to enhance the 
participation in the development of public policies continue, while the environment for civil 
society  organisations  deteriorated,  particularly  for  those  with  the  role  of  overseeing  state 
activities, and in the area of human rights. 

1 

 
RECOMMENDATIONS 

Overall, concerning the recommendations in the 2023 Rule of Law Report, Slovakia has made: 

•  No progress on introducing measures to ensure that the members of the Judicial Council, 
notably those not elected by judges, are subject to sufficient guarantees of independence as 
regards their dismissal, taking into account European standards on independence of Judicial 
Councils. 

•  No progress on ensuring that sufficient safeguards are in place and duly  observed when 
subjecting  judges  to  criminal  liability  for  the  crime  of  “abuse  of  law”  as  regards  their 
judicial decisions. 

•  No  progress  yet  on  introducing  proposals  to  regulate  lobbying  and  to  strengthen  the 

legislation on conflicts of interest and asset declarations. 

•  No  progress  on  taking  measures  to  improve  the  coordination  among  the  different  law 
enforcement entities and ensure the objectivity of prosecutorial decisions, and no legislative 
amendments  were  advanced  to  restrict  the  power  of  the  Prosecutor-General  to  annul 
prosecutorial  decisions  with  a  view  to  promoting  a  robust  track  record  of  high-level 
corruption cases. 

•  No progress on enhancing the independent governance and editorial independence of public 

service media taking into account the European standards on public service media. 

•  Some progress on advancing with the process to establish legislative and other safeguards 
to improve the physical safety and working environment of journalists, including the reform 
of defamation law, taking into account European standards on the protection of journalists. 
•  No progress on ensuring effective public consultation and stakeholder involvement in the 

law-making process. 

On this basis, and considering other developments that took place in the period of reference, 
and in addition to recalling the relevant commitments made under the Recovery and Resilience 
Plan, and the relevant country-specific recommendations under the European Semester, it is 
recommended to Slovakia to: 

• 

Introduce measures to ensure that the members of the Judicial Council, notably those not 
elected  by  judges,  are  subject  to  sufficient  guarantees  of  independence  as  regards  their 
dismissal, taking into account European standards on independence of Judicial Councils.  
•  Ensure that sufficient safeguards are in place and duly observed when subjecting judges to 

• 

criminal liability for the crime of “abuse of law” as regards their judicial decisions.  
Introduce proposals to regulate lobbying and to strengthen the legislation on conflicts of 
interest and asset declarations.  

•  Ensure the effective and independent investigation and prosecution of high-level corruption 
cases with a view to establishing a robust track record, including by preventing any undue 
interference in such cases and by restricting the use of the Prosecutor-General’s powers to 
annul final investigatory and prosecutorial decisions. 

•  Strengthen  the  rules  and  mechanisms  to  restore  and  further  safeguard  the  independent 
governance  and  editorial  independence  of  public  service  media  taking  into  account 
European standards on public service media.  

2 

 
 
•  Advance  with  the  process  to  establish  legislative  and  other  safeguards  to  improve  the 
physical safety and working environment of journalists, including the reform of defamation 
law, taking into account the European standards on the protection of journalists. 

•  Ensure  effective  public  consultation  and  stakeholder  involvement  in  the  law-making 

process, including by avoiding excessive use of the fast-track procedure. 

3 

 
 
 
I. 

JUSTICE SYSTEM  

The  court  system  of  the  Slovak  Republic  consists  of  36  District  Courts,  including  five 
Municipal  Courts,  eight  Regional  Courts,  three  Administrative  Courts,  the  Specialised 
Criminal  Court,  the  Supreme  Court,  the  Supreme  Administrative  Court,  and  the  Slovak 
Constitutional Court1. The Regional Courts function as the courts of appeal in civil, commercial, 
and  criminal  cases.  The  Specialised  Criminal  Court  is  competent  to  judge  serious  criminal 
matters  as  enumerated  in  the  relevant  provision  of  the  Code  of  Criminal  Procedure2.  The 
Judicial  Council  plays  a  central  role  in  the  administration  of  the  judiciary  and  in  the 
appointment of judges, as well as in maintaining judicial ethics. Half of its members (9 out of 
18) are judges elected by their peers. Other members of the Judicial Council are appointed by 
the Slovak President, the Parliament, and the Government3. The public prosecution service of 
Slovakia  is  an  independent  state  authority  headed  by  the  Prosecutor  General 4 .  Slovakia 
participates in the European Public Prosecutor’s Office (EPPO). The Slovak Bar Association 
is an independent self-administrative professional organisation5. 

Independence  

The level of perceived judicial independence in Slovakia continues to be low among both 
the general public and companies. Overall, 33% of the general population and of companies 
perceive the level of independence of courts and judges to be ‘fairly or very good’ in 20246. 
The  perceived  judicial  independence  among  the  general  public  has  slightly  decreased  in 
comparison with 2023 (34%) but remains higher than in 2020 (26%). The perceived level of 
independence  among  companies has consistently  increased since 2020 (15%), as well as in 
comparison with 2023 (31%)7. 

The  Parliament  passed  a  criminal  law  reform  and  dissolved  the  Special  Prosecutor’s 
Office, in a fast-track legislative procedure and without appropriate consultation, raising 
serious concerns on the process and content of the reform. In its Programme Statement, the 
new Government8 announced a plan to recodify the Criminal Codes with the stated objective 
to  humanise  the  prescribed  sanctions 9 .  On  6  December  2023,  the  Government  tabled  in 
Parliament the draft amendments to the Criminal Code and other related acts, using a fast-track 

1   For a description of the judicial structure, see e.g. the Annual study for the European Commission carried out 

by the Council of Europe Commission for the Efficiency of Justice (CEPEJ). 

2   Slovak Code of Criminal Procedure, Section 14 (e.g. premeditated murder, corruption, terrorism, organised 

crime, severe economic crimes, damaging the financial interests of the EU etc.). 

3   Art. 141a of the Slovak Constitution. 
4   Arts. 149-151 of the Slovak Constitution; Act No. 153/2001 Coll. On Public Prosecution Service. 
5   Parliamentary Act No. 586/2003 Coll. on the Legal Profession and on Amending Act No. 455/1991 Coll. on 

the Business and Self-employment Services (Business Licensing Act) of 4 December 2003. 

6   Figures 51 and 53, 2024 EU Justice Scoreboard, and Figures 50 and 52, 2022 EU Justice Scoreboard. The 
level  of  perceived  judicial  independence  is  categorised  as  follows:  very  low  (below  30%  of  respondents 
perceive judicial independence as fairly good and very good); low (between 30-39%), average (between 40-
59%), high (between 60-75%), very high (above 75%).  

7   33% of the companies in Slovakia are either fairly or very confident that their investments are protected by 
the  law  and  courts  in  the  Member  State.  46%  of  the  surveyed  companies  see  the  quality,  efficiency  or 
independence of justice as one of the main reasons for concern about investment protection in the country. 
Figures 55 and 56, 2024 EU Justice Scoreboard. 

8   A new Government was formed on 25 October 2023 after parliamentary elections on 30 September 2023.  
9   Programme Statement of the Government of the Slovak Republic, 2023-2027, pp. 63 and 64. 

4 

 
 
legislative procedure10, without appropriate consultation of stakeholders. Parliament adopted 
the  amendments  on  8  February  2024  in  the  third  reading 11.  The  former  President  of  the 
Republic  voiced  concerns  over  the  amendments  during  the  legislative  process 12 and,  upon 
signature of the law on 16 February, requested a constitutional review on 19 February, asking 
the Constitutional Court to suspend the entry into effect of the amendment13. The Constitutional 
Court  merged  the  request  with  two  requests  for  constitutional  review  filed  by  groups  of 
members of Parliament and, on 28 February 2024, temporarily suspended parts of the reform14. 
In its final decision of 3 July 2024, the Constitutional Court declared only some parts of the 
Criminal Codes’ amendment unconstitutional, namely those that would retroactively interfere 
with  criminal  proceedings 15 .  The  criminal  law  reform  brings  changes  to  the  statutes  of 
limitations of crimes  and penalties, including  by  introducing  waivers of  penalties involving 
detention.  Furthermore,  the  Special  Prosecutor’s  Office,  specialised  in,  inter  alia,  fighting 
corruption and EU budget fraud, was dissolved through this reform. Overall, these amendments 
raise  concerns  as  regards  the  effective  fight  against  corruption  and  the  protection  of  EU 
financial interests16. The European Commission has repeatedly expressed its serious concerns 
over the procedure and the content of the reforms, calling on the Slovak authorities to consult 
the draft law with the Venice Commission, during an intensive political and technical dialogue 
with the Slovak authorities. Concerns were also expressed by the European Chief Prosecutor17 
and the European Parliament adopted a resolution18. The criminal law reform sparked mass 
protests across Slovakia, with calls on the Government to put the legislative procedure on hold 
and to refrain from carrying out the planned changes19. This reform was adopted despite the 

10   Act No. 40/2024 Coll., amending Act No. 300/2005 Coll. The Criminal Code, as amended, and other acts. The 

issue of the fast-track legislative procedure is described in Pillar IV.  

11   Government of the Slovak Republic (2024), Slovak Parliament approved amendments to the Criminal Code. 
12   The information on signing the law can be  found on President of the Slovak Republic (2024), Signed and 
vetoed laws. The information on filing the request for constitutional review can be found in  Constitutional 
Court of the Slovak Republic (2024), Decision No. PL. ÚS 3/2024-112 from 28 February 2024, pp. 1-2.  
13   President of the Slovak Republic (2024), Proposal to initiate proceedings on compliance of legal acts, pursuant 

to Article 125(1)(a) of the Constitution of the Slovak Republic. 

14   The Constitutional Court suspended  all the amendments to the Criminal Code and the Act  on the criminal 
liability  of  legal  persons  and  suspended  two  amending  provisions  to  the  Criminal  Procedure  Code. 
Constitutional Court of the Slovak Republic (2024), Decision No. PL. ÚS 3/2024-112 from 28 February 2024, 
p. 2. 

15   Constitutional Court of the Slovak Republic (2024), Press release  No 30/2024 of 3 July 2024. Amongst the 
provisions considered unconstitutional are the retroactive opening of plea agreements and those on the penalty 
of confiscation of property. However, on the reduction of penalties, the lowered statutes of limitation and the 
dissolution  of  the  Special  Prosecutor’s  Office  were  not  considered  unconstitutional.  The  Court  equally 
concluded that it did not find the dissolution non-compliant with EU law. In its ruling, the Court considered 
that the fast-track procedure contained procedural deficiencies, but not  to such extent that the Constitution 
would be breached. Similarly, on the dissolution of the Special Prosecutor’s Office, the Court emphasized its 
restraint and respect for the state power exercising direct democratic legitimacy, that is the Parliament. The 
suspension of the effect of the provisions will be lifted once the decision enters into effect. 

16   For more details, see pillar II below. Transparency International (8 February 2024), The approved amendments 

to the criminal code weakens the rule of law and the fight against corruption. 

17   EPPO (2023), Statement regarding the legislative amendments proposed by the Slovak government. 
18   European  Parliament,  Resolution  of  17  January  2024  on  the  planned  dissolution  of  key  anti-corruption 

structures in Slovakia and its implications for the rule of law, 2023/3021(RSP). 

19   DenikN (2024), There were 30,000 people at the Bratislava protest, the most since demonstrations against the 
amendment to the Criminal Code began. Jurist – Legal News & Commentary (9 February 2024), Thousands 
protest in Slovakia over proposed criminal law reform; Reuters (8 February 2024), Slovakia approves criminal 
law reforms that sparked protests; Reuters (1 February 2024), Slovaks ratchet up protests against government’s 
criminal law reform; AP News (26 January 2024), Thousands protest in Slovakia against plan to amend penal 

5 

 
 
 
Government’s plans to carry out a recodification of the Criminal Codes in 2025 and 202620. 
On 16 July  2024, fast-track amendments  to  the Slovak Criminal  Code were adopted by the 
Slovak Parliament with a view to ensure better alignment with relevant EU legislation21. 

There was no progress on the introduction of safeguards for the dismissal of the members 
of  the  Judicial  Council  and  the  new  Government,  Parliament  and  the  new  President 
dismissed  their  nominees  before  the  end  of  their  term.  The  2023  Rule  of  Law  Report 
recommended to Slovakia to “ensure that the members of the Judicial Council are subject to 
sufficient guarantees of independence as regards their dismissal, taking into account European 
standards  on  independence  of  Judicial  Councils”22.  As  reported  in  last  years’  Reports,  the 
conditions for the dismissal of Judicial Council members, notably those not elected by judges23, 
have still not been laid out in law. Shortly after assuming office, the new Government dismissed 
the three members of the Judicial Council appointed by the previous Government, ahead of the 
end of their term, and appointed three new members to replace them24. Two of the dismissed 
members challenged this decision before the Constitutional Court25. Both Parliament and the 
President also have the right to  dismiss three members each, constituting, together with  the 
Government’s  nominees,  half  of  the  Judicial  Council.  On  16  April,  the  Judicial  Council, 
supported by, inter alia, all three members newly nominated by the Government, dismissed its 
President  from  the  function,  alleging  a  breach  of  law 26 .  The  dismissed  President  was 
unsuccessful with  his  constitutional complaint against this decision and plans to  submit the 
case  before  the  European  Court  of  Human  Rights27.  Parliament  subsequently  dismissed  the 
former President of the Judicial Council, together with one other member, as the members of 
the Judicial Council, who are nominated by Parliament28. Moreover, the new Slovak President 

code and close special prosecutor’s office; SME News (8 February 2024), Protests and  obstruction did not 
work, parliament approved new criminal codes; Euractiv (2 February 2024), Opposition to Slovakian PM’s 
proposed criminal reforms grows. 

20   Written  input  from  Slovakia, p.  2.  Information  received  from  the  Ministry  of  Justice  in  the  context of  the 

country visit to Slovakia. 

21   The Act will have to be signed by the Prime Minister, the Speaker of the Parliament, and the President of the 
Slovak Republic, before being sent to the Ministry of Justice for its publication in the Collection of Laws. The 
Commission is currently analysing the criminal law reform, including these latest amendments.  

22   2022 and 2023 Rule of Law Reports, Country Chapter on the rule of law situation in Slovakia, p. 2 and p. 2. 
23   The Council is composed of 18 Members, half of which are judges elected by their peers. The Government, 
the Parliament and the President of the Republic each choose three members as well. Members of the Council 
can be dismissed only by the body which appointed them. 

24   Government of the Slovak Republic (2023), Decision of the Government of the Slovak Republic No. 576 of 
2  November  2023  on  the  proposal  to  dismiss  and  appoint  members  of  the  Judicial  Council  of  the  Slovak 
Republic. 

25   Aktuality.sk (2023), Two dismissed members of the Judicial Council: The Government decided arbitrarily, we 
will file a constitutional complaint; RTVS (2024), Former members of the Judicial Council were not successful 
with their constitutional complaints against their dismissal. 

26   Slovak  Judicial  Council  (2024),  Proposal  to  dismiss  the  president  of  the  Judicial  Council  of  the  Slovak 
Republic, prof. JUDr. Ján Mazák, PhD., from his function as the president of the Judicial Council, pp. 1-2; 
Slovak  Judicial  Council  (2024),  Decision  No.  103/2024  of  16 April  2024.  The  decision  on  dismissal  was 
adopted based on the proposal of six members of Judicial Council, five of whom were elected by judges. 
27   As announced on the website of the Judicial Council. Slovak Judicial Council (2024), Constitutional complaint 
pursuant to Article 127 of the Constitution of the Slovak Republic and a Request for interim measures; The 
President of the Judical Council issued a statement on this matter: Slovak Judicial Council (2024), Statement 
of the President of the Judicial Council of 15 April 2024; Additional input from the Slovak Judicial Council 
in the context of the country visit to Slovakia. RTVS (2024), Ján Mazák did not succeed with his constitutional 
complaint against his dismissal as a President of the Judicial Council. 

28   Slovak Judicial Council (2024), Judicial Council of the Slovak Republic again in incomplete composition. 

6 

 
 
dismissed  two  of  the  former  President’s  nominees  as  well29.  The  Judicial  Council  plays  a 
significant role, in particular, in the selection procedure for the office of a judge, the vetting 
procedure of a judge, disciplinary proceedings against judges, or in granting a decision not to 
prosecute a judge for the crime of ‘abuse of law’30. According to the case law of the Court of 
Justice of the European Union, judicial councils need to be subject to sufficient guarantees of 
independence in relation to the legislature and the executive, including as regards the way their 
members can be dismissed31. Considering that no guarantees for independence were introduced 
as regards the dismissal of members of the Judicial Council, there has been no progress on the 
implementation of the recommendation made in the previous years. 

Statements  of  Government  representatives  targeting  certain  judges  raise  criticism  for 
interference with the judicial independence. Judges, including representatives of the highest 
courts, have been targets of strong statements by representatives of the Government, including 
public calls for removal from their posts. These statements were condemned by the Judicial 
Council, in particular those attacking the judges for their decision making32.In the context of 
an inspection of allocation of cases, the Ministry of Justice has requested twice the disclosure 
of  a  significant  amount of  information  on  cases  handled  by  the  Supreme  Court,  which  was 
refused and condemned by the President of the Supreme Court as excessive and interfering 
with sensitive information contained in the files33. The Ministry had the same request in relation 
to  cases  at  the  Specialised  Criminal  Court,  which  provided  the  access.  In  this  context,  the 
Supreme Court President faced personal attacks and the President of the Specialised Criminal 
Court resigned34. The Government’s actions were condemned by the Judges for Open Judiciary, 
appealing  to  the  Government  representatives  to  refrain  from  the  statements  that  undermine 
public trust and respect for the courts35, as well as the President of the European Association 
of Judges, that noted threats to the independence of justice36.  

The amendments to the Criminal Procedure Code do not introduce any new safeguards 
as regards the crime of ‘abuse of law’, but they raise additional concerns. The 2022 and 

29   Slovak Judicial Council (2024) Press release of 15 July: The Judicial Council of the Slovak Republic has two 
fewer members. RTVS (2024) President P. Pellegrini dismissed two members of the Slovak Judicial Council 
(‘Prezident  P.  Pellegrini  odvolal  dvoch  členov  Súdnej  rady  SR‘).  SME  (2024)  Pellegrini  dismissed  two 
members of the Judicial Council, which were nominated by the former President (‘Pellegrini odvolal dvoch 
členov Súdnej rady, ktorých vymenovala ešte bávalá prezidentka‘). The President noted that he dismissed the 
two members so that he could contribute his own ideas to the functioning of the Judicial Council. 

30   Inter alia, Section 3b and 4 of Act No. 185/2002 Coll., on Judicial Council. 
31   The Court of Justice of the European Union has recalled, as regards the process for appointing members of the 
judiciary, for a Council of the Judiciary to contribute to rendering that process more objective, it is necessary 
that such a body should itself be sufficiently independent of the legislature, the executive and the authority to 
which it is required to submit an opinion on the assessment of candidates for a judicial post (judgment of 20 
April 2021, Case C-896/19, Repubblika, ECLI:EU:C:2021:311, para. 66). 
32   Slovak Judicial Council (2024), Decision No. 136/2024 of 17 April 2024. 
33   Information  about  the  inspection  is  available  on  the  website  of  the  Ministry  of  Justice.  Statements  by  the 
President of the Supreme Court as quoted in Sita (2024), Denníik N (2024a), HNonline.sk (2024). Second 
inspection was asked in the form of remote access to the database. The same request was made by the Ministry 
of Justice at the Specialised Criminal Court, which did disclose the requested files. Subsequently, the President 
of the Specialised Criminal Court resigned.   

34   Aktuality.sk (2024), President of the Specialised Criminal Court resigns; RTVS (2024), Ján Hrubala resigns 

from the post of President of the Specialised Criminal Court.  

35   SME.sk (2024), Judges for Open Judiciary appeal to the politicians not to undermine public trust for the courts 

by their statements.  

36   El Espanol (2024), European judges put Spain on a level with Hungary due to the deterioration of judicial 

independence.  

7 

 
 
2023 Rule of Law Reports recommended to Slovakia to “ensure that sufficient safeguards are 
in place and duly observed when subjecting judges to criminal liability for the crime of ‘abuse 
of law’ as regards their judicial decisions”37. Under this crime, judges may be prosecuted for 
an arbitrary decision causing damage to or bestowing a favour on another person38. The judge 
has a possibility to request the Judicial Council to discontinue the criminal proceedings by a 
vote of minimum ten of its members39. However, this can take place only after the indictment 
enters into effect, meaning that at the moment of the voting of the Judicial Council, the judge 
may already be in detention 40. Instead of introducing additional safeguards, the new wording 
of the Criminal Procedure Code might however suggest that the content of judicial decisions 
may be subject  to  prosecution also  under different  offences than the one of ‘abuse of law’, 
bringing a level of uncertainty to the application of the provision41. Moreover, the amendments 
to the Criminal Procedure Code, in the context of the amendments to the Criminal Code and 
other  related  acts  of  8  February  202442,  have  limited  the  judge’s  right  to  request  a  vote  to 
discontinue criminal proceedings from the Judicial Council. While there was no time limit so 
far, the law now foresees a limit of 60 days from the delivery of a decision on indictment43. 
Since the introduction of the crime of ‘abuse of law’ in 202144, only two cases were brought 
before the court45. However, over 100 crime reports against judges were filed based on this 
provision,  which, so far, has been dismissed in  early stages of proceedings, creating a high 
administrative  workload  connected  with  the  handling  of  these  complaints 46.  The  criminal 
proceedings negatively affect the judges not only because of the burden of the investigation as 
such, but also because the lack of clarity and insufficient safeguards make the provision prone 
to  potential  misuse,  creating  a  chilling  effect  on  the  independent  exercise  of  the  judges’ 
decision-making47.  Criminal  proceedings  against  a  judge  are  also  a  relevant  aspect  for  the 
vetting procedure of a judge48. As the recent legislative changes do not improve safeguards for 

37   2023 and 2022 Rule of Law Reports, Country Chapter on the rule of law situation in Slovakia, p. 6 and p. 2, 

respectively. 

38   Section 326a of the Slovak Criminal Code, 2022 and 2023 Rule of Law Report, Country Chapter on the rule 

of law situation in Slovakia, p. 4 and 6 respectively.  

39   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 6.  
40   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 6. See also Statement 

by nine members of the Judicial Council of 5 February 2024.  

41   Section 9 para 2 of the Criminal Procedure Code now provides an additional sentence which reads that ‚[t]he 
prosecution of a judge must be discontinued, or the case referred for a disciplinary offence only if the act of 
which the judge is accused cannot be legally assessed as a different offence.‘  The crime of ‚abuse of law‘ 
constitutes  a  lex  specialis  to  the  crime  of  ‚abuse  of  power  by  a  public  official‘  under  Section  326  of  the 
Criminal Code.  

42   The provisions of the Criminal Procedure Code (except for two provisions, the effect of which was suspended 

by the Constitutional Court) entered into effect on 15 March 2024.  

43   Section 207a, para 3. Before this amendment, there was no time limit for the judge to file such request with 

the Judicial Council.  

44   Introduced  by  2020  Constitutional  amendments,  with  the  aim  to  enhance  the  integrity  regime  for  judges, 

effective as of 2021. 

45   Country  visit  to  Slovakia,  Specialised  Criminal  Court.  One  of  the  two  cases  has  already  been  decided, 

Specialised Criminal Court (2023), Judgment No. 4T/1/2023 of 24 February 2023. 

46   Country visit to Slovakia, Specialised Criminal Court; 2023 Rule of Law Report, Country Chapter on the rule 

of law situation in Slovakia, p. 6. 

47   Country visit to Slovakia, Judges for Open Judiciary, Association of Judges, 2023 Rule of Law Report, Country 
Chapter on the rule of law situation in Slovakia, p. 7; The Judicial Council has publicly issued decision No 
63/2023 on the crime of abuse of law, as stipulated in Section 326a of the Criminal Code, from 16 February 
2023. 

48   Vetting procedure of a judge is initiated every time when there is a promotion of a judge to a higher court, but 
also by the decision of the Judicial Council if a majority agrees (i.e. more than 9), Act on the Judicial Council. 
Information received by the Association of Judges. 

8 

 
 
judges as regards the crime of “abuse of law”, but raise further concerns, there has been no 
progress on the recommendations. 

The  reformed  judicial  map,  including  the  separate  system  of  administrative  courts,  is 
generally operating well, with some initial challenges to be overcome. The reform, referred 
to in the previous Rule of Law Reports49, took effect on 1 June 2023, after a postponement of 
five months to allow for a better preparation of the justice system. Since then, courts operate 
in adjusted districts and regions, and there is a new separate system of administrative courts50. 
Data  collected  by  the  Ministry  of  Justice  suggest  that  these  changes  did  not  cause  any 
immediate systemic disruptions of performance at the district or regional level51. Stakeholders 
report challenges in  the  administration and organisation  of work, higher financial demands, 
and  some  negative  impacts  on  parties  in  proceedings,  while  long-standing  issues  such  as 
remuneration of administrative and assistant staff are not addressed52. The new administrative 
courts  started  operating  while  only  partially  staffed,  with  the  situation  progressively 
improving.53 The reform has required adjustments to the functioning of the prosecution service, 
where  challenges  were  reported,  especially  as  regards  the  accessibility  of  courts,  logistical 
issues and the efficiency of the work of public prosecutors54. While initial challenges and a 
temporary drop in court efficiency was expected55, the aim of the reform is to progressively 
improve  the  efficiency  and  quality  of  the  justice  system,  in  particular  by  increasing  the 
specialisation of judges56.  

The  power  of  the  Prosecutor  General  to  annul  decisions  of  lower-ranking prosecutors 
without adequate safeguards remains a concern. The Prosecutor General has the power, as 
an extraordinary remedy, to annul any final decision by lower-ranking prosecutors or the police, 
made in the pre-trial stage of criminal proceedings, if the decision is considered to be in breach 
of the law, without the obligation to reason such a decision (Section 363 et seq. of the Criminal 
Procedure Code)57. There is neither judicial review of such decisions, nor any other remedy58. 
According  to  European  standards,  interested  parties  or  victims  should  be  able  to  challenge 

49   2023, 2022 and 2021 Rule of Law Reports, Country Chapter on the rule of law situation in Slovakia, pp. 3-4, 

pp. 5-6 and pp. 7-8, respectively. 

50   See website of the Ministry of Justice, https://www.justice.gov.sk/sudy-a-rozhodnutia/sudna-mapa/zmeny-v-
sudnej-mape/. 2023, 2022 and 2021 Rule of Law  Reports, Country Chapter on the rule of law situation in 
Slovakia, pp. 9-10, p. 7 and p. 6, respectively. 

51   Information received in the context of the country visit from the Ministry of Justice.  
52   Statement by nine members of the Judicial Council of 5 February 2024, p. 2. And information received in the 
context of the country visit from Association of Judges of Slovakia. Association of Judges of Slovakia (2024), 
Association  is  currently  gathering  knowledge  and  experience  of  its  members,  which  it  will  evaluate  in  a 
complex manner. 

53   This  temporarily  impacted  their  performance,  written  contributions  from  Liberties  Europe, Association  of 
Judges of Slovakia. Information received in the context of the country visit from the Supreme Administrative 
Court.  

54   Information received in the context of the country visit from the Office of the Prosecutor General.  
55   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 4.  
56   The Ministry of Justice is collecting feedback from courts and analysing how the reform would affect the work 

of courts and the accessibility of justice by the public. 

57   Art. 363(1) et seq. of the Criminal Procedure Code. The Prosecutor General shall revoke the final decision of 
the prosecutor or police officer if the decision or proceedings which preceded it were in breach of the law. 
2022 and 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 9 and p. 7, 
respectively. 

58   Art. 363(3) of the Criminal Procedure Code. See also Figure 59, 2022 EU Justice Scoreboard. Following such 
decision, the only possibility for investigators to bring charges is to start the process again and collect new 
evidence different from what was presented in the original case. 

9 

 
 
decisions of public prosecutors not to prosecute59. In addition, European standards relating to 
autonomy and internal independence within the prosecution service call for a clear mechanism 
to  allow  lower-level  prosecutors  to  appeal  against  assignments  or  instructions  of  a  superior 
prosecutor60. As reported in last year’s Report, Section 363 of the Criminal Procedure Code 
was challenged before the Constitutional Court, which adopted a decision on 21 June 2023 not 
to grant the motion61. The Constitutional Court decision, however, did not address the issue of 
safeguards,  which  are  required  by  European  standards.  A  second  constitutional  complaint, 
launched by Slovakia’s former President Čaputová, requesting to assess the constitutionality 
of the activities of the Prosecutor General regarding the use of Section 363, is pending62. 

The Special Prosecutor’s Office has been dissolved without adequate safeguards being 
put  in  place,  risking  to  impact  the  efficiency  and  autonomy  of  the  prosecutions.  The 
amendments  to  the  Criminal  Code  and  other  related  acts  of  8  February  2024,  led  to  the 
dissolution of the Special Prosecutor’s Office (SPO) with effect as of 20 March 2024. Until its 
dissolution, the SPO was a specialised branch investigating the most serious crimes, including 
corruption, that fall within the competence of the Specialised Criminal Court63. The SPO was 
also dealing with offences concerning the protection of financial interests of the Union. The 
SPO,  headed  by  the  Special  Prosecutor  appointed  by  Parliament 64,  held  a  certain  level  of 
autonomy from the Prosecutor General’s Office (PGO). For example, the Prosecutor General 
was not entitled to give instructions to the Special Prosecutor or the SPO prosecutors and was 
not entitled to carry out tasks for the Special Prosecutor or the SPO prosecutors65. Following 
the  SPO’s  dissolution,  all  its  prosecutors  have  been  included  in  organisational  units  of  the 

59   Interested  parties  of  recognised  or  identifiable  status,  in  particular  victims,  should  be  able  to  challenge 
decisions of public prosecutors not to prosecute; such a challenge may be made, where appropriate after a 
hierarchical review, either by way of judicial review, or by authorising parties to engage private prosecution. 
Recommendation  Rec(2000)19  of  the  Committee  of  Ministers  on  the  Role  of  Public  Prosecution  in  the 
Criminal Justice System, para 34. See also Venice  Commission CDL-AD(2010)040-e Report on European 
Standards as regards the Independence of the Judicial System: Part II — the Prosecution Service (2011), para 
45 and Venice Commission Rule of Law Checklist (2016), para. 96. 

60   Clear  mechanisms  should  be  established,  which  will  allow  lower-level  prosecutors  to  appeal  against 
assignments  or  instructions  of  a  superior  prosecutor  if  they  find  that  these  assignments  or  instructions  are 
illegal or unjustified. CCPE Opinion No. 13: Independence, accountability and ethics of prosecutors (2018), 
para 43. Also Recommendation CM/Rec(2000)19 of the Committee of Ministers to member states on the role 
of public prosecution in the criminal justice system, recommendation 9 and 10; Venice Commission, Rule of 
Law Checklist, CDL-AD(2016)007rev, para. 92. These apply also in cases where the Prosecutor General can 
issue  a  decision  on  discontinuation  of  the  prosecution  procedure  directly.  Venice  Commission  CDL-
AD(2014)042, Opinion No. 785/2014 Interim Opinion on the Draft Law on the State Prosecution Office of 
Montenegro, paras. 34 and 108. 

61   Constitutional Court of the Slovak Republic (2023), Decision No. PL. ÚS 1/2022-270 from 21 June 2023; The 
motion was submitted by a group of Members of Parliament and the President of the Slovak Republic. In its 
decision, the Constitutional Court did not assess the application practice of the contested provisions, as this 
was not the subject of the compliance proceedings. The 2023 Report also referred to draft amendment to the 
Criminal Procedure Code, however, it was not tabled for adoption in Parliament before the elections on 30 
September 2023. 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 7. The 
current amendments do not address this issue. 

62   Reuters  Press Agency/Daily  SME  (2023),  The  Constitutional  Court  accepted  the  President's  proposal  for 
further proceedings; This complaint is based on the fact that the Prosecutor General refused to provide the 
President with information on his decisions made under section 363.  

63   Art. 14 of the Criminal Procedure Code before its amendment by the Act No. 40/2024. The SPO was also 

competent to prosecute the crime of abuse of law. 

64   Former Section 24a of the Act No. 154/2001 Coll., on public prosecutors and candidates for the position of 

public prosecutor.  

65   Former Section 55d of the Act on the prosecution service. 

10 

 
 
Prosecutor  General’s  Office 66 ,  unless  they  filed  a  request  to  be  placed  in  the  regional 
prosecution offices67. The transfer of former SPO prosecutors in various units within the PGO 
was  done  without  their  consent  and  in  most  of  the  cases  not  reflecting  their  expertise 68. 
Furthermore, consequently to their transfer and that of all their files to the premises of the PGO, 
the prosecutors did not have proper access to their files and in some cases missed legal and 
courts’  deadlines  for  procedural  acts  before  the  court,  and  files  were  reassigned  to  other 
prosecutors with the risk of loss of expertise 69. The dismissal of the SPO and the consequent 
transfer of competence over high-level corruption cases to the PGO was not underpinned by 
an  ex  ante  impact  assessment 70.  Due  to  the  lack  of  legally  binding  safeguards  to  ensure 
continuity and effectiveness of investigations, including an effective handover of files, the SPO 
has  been  dissolved  without  adequate  safeguards  being  put  in  place,  risking  to  impact  the 
efficiency of the prosecution system, as well as the ongoing cases.   

Quality  

The level of digitalisation of the justice system is advanced but the development of a new 
digital  court  management  system  faces  setbacks.  According  to  the  2024  EU  Justice 
Scoreboard, the level of digitalisation of the justice system is advanced, especially as regards 
civil, commercial, and administrative cases71. Digital tools are broadly used in courts, including 
an electronic case management system, technology for distance communication and electronic 
case allocation. In 2023, the Ministry of Justice faced setbacks in its project to develop a new 
digital Court Management System72. Work on the connection between the information systems 
of the police and the prosecution service, aiming to allow the electronic exchange of documents, 
in  a first  stage,  and of the whole investigation file, at  a later stage, is  progressing slowly73. 
Digitalisation efforts are also supported by funding from the EU, including the Recovery and 
Resilience Facility74. 

Amendments to increase access to free legal aid are under preparation. Amendments to 
the Act on free legal aid, in preparation since 2022, are currently in an inter-ministerial review. 

66   As a result of the Act No. 40/2024 Coll., amending Act No. 300/2005 Coll. The Criminal Code, as amended, 
and  other  acts,  Section  55(d)(3)  of Act  No  153/2001  to  prevent  interfering  in  the  activities  of  the  special 
prosecutors were abolished with effect from 20 March 2024 and were not replaced by other safeguards. 
67   There were two such requests, however, the  former SPO prosecutors were not enabled to be placed in the 

regional prosecution offices. 

68   Written  information  provided  by  Slovakia  in  the  context  of  the  RRP  in April  2024.  Open  letter  from  11 
prosecutors from the former Special Prosecutor’s Office to the Prosecutor General from 22 April 2024. 
69   Open letter from 11 prosecutors from the former Special Prosecutor’s Office to the Prosecutor General from 
22 April 2024. Based on Article 8 of Order of the Prosecutor General No. 10/2024 it is the prosecutor of the 
former SPO who is responsible for meeting the legal deadlines in the ongoing cases, which were not finalised 
before 20 March, such as deadlines in detention matters, filing complaints and appeals against the decisions 
of the Specialised Criminal Court, or deadlines to annul decisions of police officers on the merit. 

70   Information received from the Government Office in the context of the country visit. 
71   Figures 42 – 46, 2024 EU Justice Scoreboard. 
72   A tender launched in June 2023 was cancelled in February 2024 and a new procurement procedure is to be 
launched by the Ministry shortly. Written input from the Ministry of Justice in the context of the country visit 
to Slovakia.  

73   Written input from the Office of the Prosecutor General in the context of the country visit to Slovakia. 
74   The Slovak Recovery and Resilience Plan plans investments into digitalisation and analytical capacities for 
the justice system, particularly under Component 15 of the Slovak Recovery and Resilience plan. Component 
15 of the Slovak National Recovery and Resilience Plan. Annex to the Proposal for a Council Implementing 
Decision on the approval of the assessment of the recovery and resilience plan for Slovakia, COM(2021) 339 
final, pp. 127 – 133. 

11 

 
 
These amendments aim to bring free legal aid to a larger group of society, among others by 
increasing  the  income  threshold  for  when  people  are  entitled  to  legal  aid,  widening  the 
eligibility of persons, introducing the possibility of waiving the fee for preliminary consultation, 
or reducing the minimum value of the dispute75. At the same time, the fee for a preliminary 
consultation  has  slightly  increased  and  a  new  fee  for  processing  a  request  for  legal  aid  in 
insolvency proceedings has been introduced to respond to the economic situation and the needs 
which emerged from practice76. 

Efficiency 

The justice system continues to face challenges as regards its efficiency in administrative 
cases but is making progress.  The trend in the estimated time for resolving administrative 
cases at first instance, was reversed in 2022 as compared to 2021 (648 days, compared to 679 
in 2021 and 586 in 202077). Also, the rate of resolving administrative cases at first instance 
increased (to 93 % in 2022 from 80 % in 202178) while staying below 100 %, suggesting that 
the courts resolved fewer cases than the number of incoming cases. The available 2023 data79, 
however, suggest a further drop in the clearance rate in the wake of the reform of the judicial 
map, particularly related to the drop in the number of decided cases in the months of transition 
when administrative cases were moved from regional courts to new administrative courts. This 
drop,  however,  is  expected  to  be  only  temporary  as  positions  in  administrative  courts  are 
progressively being filled80, which has been improving their functioning. At the same time, due 
to  the criminal  law reform,  petty thefts  ceased to be criminal  offences and are  classified as 
administrative  offences  instead.  This  is  expected  to  create  an  additional  caseload  for  the 
administrative courts81.  

II. 

ANTI-CORRUPTION FRAMEWORK  

The dedicated Department for Corruption Prevention of the Office of the Government as the 
central body for the corruption prevention coordination was closed on 1 June 2024, with tasks 
being distributed within the Office of the Government, which is structurally under the Prime 
Minister’s Office82. The corruption prevention coordination competence has shifted to the State 
Security  Division  of  the  Office  of  the  Government.  A  re-organisation  is  planned  for  the 
National  Crime  Agency  of  the  Presidium  of  the  Police  Force83,  which  has  had  so  far,  the 
exclusive competence for the investigation of corruption offences and the misuse of EU funds. 
Corruption crimes committed by the police itself and certain  law enforcement agencies fall 
under the remit of the Bureau of Inspection Service84. The Bureau of Inspection Service is also 

75   Input from Slovakia for the 2024 Rule of Law Report, p. 12.  
76   Ibid.  
77   Figure 8, 2024 EU Justice Scoreboard.  
78   Figure 12, 2024 EU Justice Scoreboard. 
79   Information received in the context of the country visit from the Ministry of Justice.  
80   Information received in the context of the country visit from the Ministry of Justice. 
81   Information received in the context of the country visit from the Supreme Administrative Court. 
82   There  are  no specific regulations, including selection or removal criteria, for the  Head of the  Government 
Office, who is appointed by the Government and is not independent, see UN CoSP, Implementation Review 
Group:  State  of  the  implementation  of  the  United  Nations  Convention  against  Corruption  –  Executive 
Summary (4-8 September 2023), CAC/COSP/IRG/II/4/1/Add. 6, p. 3.  

83   As confirmed by the Slovak Minister of Interior in an interview with Štandard.sk (2024), Interview with the 
Minister  of  the  Interior  ‘NAKA  will  no  longer  continue  in  the  current  form’  (‘NAKA  v  súčasnej  podobe 
skončí’). See Euractiv, Fico’s government mulls dismantling agency that handles corruption (11 January 2024).  

84   Cf. Article 4(3) of Act No. 171/1993 Coll. on the Police Force. 

12 

 
 
in charge of following up on police’s whistleblower reports. The competences and cases of the 
Special  Prosecutor’s  Office 85,  which  had  the  exclusive  jurisdiction  for  investigations  and 
prosecutions  of  corruption  and  other  serious  criminal  offences  under  the  substantive 
jurisdiction of the Specialised Criminal Court86 until its dissolution, have been moved to the 
regional offices, while its specialised prosecutors for corruption cases have been integrated into 
the General Prosecutor’s Office. 

The perception among experts and business executives is that the level of corruption in 
the  public  sector  is  relatively  high.  In  the  2023  Corruption  Perceptions  Index  by 
Transparency International, Slovakia scores 54/100 and ranks 19th in the European Union and 
47th  globally87.  This  perception  has  improved  over  the  past  five  years.88 The  2024  Special 
Eurobarometer on Corruption shows that 77% of respondents consider corruption widespread 
in  their  country  (EU  average  68%)  and  35%  of  respondents  feel  personally  affected  by 
corruption in their daily lives (EU average 27%)89. As regards businesses, 85% of companies 
consider that corruption is widespread (EU average 65%) and 63% consider that corruption is 
a problem when doing business (EU average 36%)90. Furthermore, 31% of respondents find 
that  there  are  enough  successful  prosecutions  to  deter  people  from  corrupt  practices  (EU 
average 32%)91, while 9% of companies believe that people and businesses caught for bribing 
a senior official are appropriately punished (EU average 31%)92.  

A  new  National  Anti-Corruption  Strategy  2024-2029  and  a  related  Action  Plan  is  in 
preparation  for  adoption 93.  As  the  previous  strategy,  the  new  National  Anti-Corruption 
Strategy will focus primarily on corruption prevention by incentivising individual ministries to 
define, adopt and update their own sectoral anti-corruption measures94. It will be based on four 
pillars,  including  on  corruption  prevention  legislation,  capacity  building,  education, 

85   Act of the National Council of the Slovak Republic No. 458/2003 Coll. on the establishment of the Special 

Court and the Office of Special Prosecutor’s Office. 

86   Act No. 291/2009 Coll. on the Specialized Criminal Court. 
87   Transparency International (2024), Corruption Perceptions Index 2023. The level of perceived corruption is 
categorised  as  follows:  low  (the  perception  among  experts  and  business  executives  of  public  sector 
corruption scores above 79); relatively low (scores between 79-60), relatively high (scores between 59-50), 
high (scores below 50). 

88   In 2019, the score was 50, while, in 2023, the score is 54. The score significantly increases/decreases when it 
changes more than five points; improves/deteriorates (changes between 4-5 points) and is relatively stable 
(changes from 1-3 points) in the last five years. 

89   Special Eurobarometer 584 on Corruption (2024). The Eurobarometer data on citizens’ corruption perception 

and experience is updated every year. The previous data set is the Special Eurobarometer 534 (2023). 

90   Flash Eurobarometer 543 on Businesses’ attitudes towards corruption in the EU (2024). The Eurobarometer 
data  on  business  attitudes  towards  corruption  as  is  updated  every  year. The  previous  data  set  is  the  Flash 
Eurobarometer 524 (2023). 

91  Special Eurobarometer 584 on Corruption (2024).  
92   Flash Eurobarometer 543 on Businesses’ attitudes towards corruption in the EU (2024).  
93   Adopting a new strategy is a commitment in the Government Programme Statement of the Slovak Republic 

2023-2027 (2023). 

94   Information received from Department for Corruption Prevention of the Office of the Government (hereinafter 
‘Office  of  the  Government’)  in  the  context  of  the  country  visit  to  Slovakia.  The  previous  National Anti-
Corruption  Strategy  included  several  sectoral  programmes  adopted  by  ministries  and  other  institutions, 
including the Ministry of Justice, of Economy, of the Interior, of Transport and Construction, of Environment, 
of Finance Sector, of Foreign and European Affairs, of Health, and of Labour, among others. The related action 
plans contained also primarily preventive elements, including on awareness-raising, education and corruption 
risk-management. See 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, pp. 
12-13. 

13 

 
 
communication, and corruption risk management95. Thematically, the strategy is  planned to 
include measures on lobbying, asset declarations, and ethics of top executive officials96. It will 
be done in the course of the Government’s Programme Statement 2023-2027 and consultations, 
including  intragovernmental  and  public  consultations,  are  envisaged 97 .  The  standard 
monitoring system of the previous strategy98 remains in place, and consequently there will not 
be  a  dedicated,  centralised  evaluation  system 99 .  A  new  Statute  of  the  Council  of  Anti-
Corruption Coordinators, who  are placed in  all ministries  and other  central  authorities, was 
adopted  on  2  May  2023 100 .  As  previously  reported,  the  Council  coordinated  corruption 
prevention work with the closed Department for Corruption Prevention of the Office of the 
Government101; yet it continues to serve as an advisory body for the Head of the Government 
Office. 

The criminal law reform raises serious concerns regarding the robustness of Slovakia’s 
legislative framework against corruption. The consequences of the criminal law reform102, 
which was suspended by the Constitutional Court for review103, include lowering the penalties 
for corruption and corruption-related crime104 and shortening the statutes of limitation periods 

95   Information received by the Office of the Government in the context of the country visit to Slovakia. 
96   Government Programme Statement of the Slovak Republic 2023-2027 (2023). 
97   Information received by the Office of the Government in the context of the country visit to Slovakia.  
98   With the performance of the tasks defined in the strategy being reported only according to their deadlines as 

inspected by the Office of the Government but not on their content. 

99   A non-public annual summary is compiled by the Office of the Government and submitted to the Government. 
The  Government  does  not  consider  a  central  evaluation  system,  in  an  electronic  or  any  other  form  as  an 
improvement.  

100  Information received from the Government during the Member States’ consultation. 
101  See  2022  and 2021  Rule  of Law  Report,  Country  Chapter  on  the  rule  of  law  situation in  Slovakia,  p.  12, 

footnote 102 (for 2022) and p. 11, footnote 104 (for 2021). 

102  Amendments to the Criminal Code and other related acts (Act No. 40/2024 Coll.) amending Act No. 300/2005 
Coll., the Criminal Act, as amended, and amending and supplementing certain  other acts. European Public 
Prosecutor’s Office (18 December 2023), Statement regarding the legislative amendments proposed by the 
Slovak  Government,  see  EPPO  (2023),  Statement  regarding  the  legislative  amendments  proposed  by  the 
Slovak  government.  Contribution  to  the  2024  Rule  of  Law  Report  by  Zastavme  Korupciu/  Via  Iuris/ 
Transparency  International,  The  threat  to  the  stability  of  democracy  and  the  rule  of  law  in  Slovakia;  by 
ENNHRI, p. 15; by Civil Liberties Union for Europe; by the Slovak National Centre for Human Rights, pp. 2 
et  seq.  Transparency  International  (8  February  2024),  Transparency  International  (2024),  ‘The  approved 
amendments to the criminal code weakens the rule of law and the fight against corruption’. Denník Postoj (8 
January 2024), Pellegrini introduces the change in criminal codes, the amendment was tailor-made for their 
people, according to ex-minister Karas; SME News (8 February 2024), Protests and obstruction did not work, 
parliament approved new criminal codes. Euractiv (2 February 2024), Opposition to Slovakian PM’s proposed 
criminal reforms grows; Since December 2023, the European Commission has informed Slovakia in several 
meetings about its concerns about potential breaches of EU law protecting the financial interests of the Union 
and the EU’s anti-corruption legislation.  

103  On 11 March 2024, together with the amendments to the criminal and criminal procedure law, the decision of 
the Constitutional Court was published in the Official Journal as No. 41/2024 Coll. The Court suspended the 
effectiveness of Article I, Article II, point 39, Art. II, point 134 in the part relating to Article 567t(4) and Article 
XVII of the Act of 8 February 2024 amending Act No. 300/2005 Coll., the Criminal Act, as amended, and 
amending certain other acts. For the remaining parts, including the abolishment of the Special Prosecutor’s 
Office as a specialised body to fight high-level corruption, the Constitutional Court did not grant the motions 
to suspend the entry into force of the act. 

104  Public sector corruption amendments include: section 329 of the Criminal Code, the sanction level would be 
lowered from 3-8 to 1-5 years; section 330, from 5-12 to 3-8 years; for section 333from 5-12 to up to 2 years; 
section 334, from 2-5 to 1-5 years; section 336a, for aggravating circumstances, from 5 to 3 years; section 
336a, from up to 1 year to up to 6 months; section 336c for aggravating circumstances from 8 to 7 years; 

14 

 
 
 
within which corruption-related crimes could be brought to justice105. On 28 February 2024, 
the  Constitutional  Court  decided  to  accept  the  proposals  to  initiate  proceedings  on  the 
compliance  of  the  act  with  the  constitution  and  to  suspend  the  entry  into  force  originally 
planned for 15 March 2024 of some parts of the reform106. The temporary suspensive effect 
extended  to  the  lowered  corruption  penalties,  the  shorter  statute  of  limitation  periods  for 
corruption  prosecutions,  and  the  new  rules  on  suspects  that  cooperate  with  corruption 
investigators and prosecutors until the court’s decision on the merits. The Constitutional Court 
ruled on the matter on 3 July 2024107. When the relevant provisions enter into force, several 
currently ongoing corruption cases related to high-level officials, politicians and businessmen 
closely  affiliated  to  politics  risk  being  irretrievably  affected108,  with  approximately  30%  of 
cases of the Special Prosecutor Office risking to be discontinued due to the new, shorter statutes 
of  limitation109.  Furthermore,  due  to  the  newly  introduced  waiver  of  punishment,  penalties 
(including imprisonment) for corruption crimes can be avoided if the perpetrator compensates 
the damage caused110, potentially resulting in impunity for corruption-related crimes. In terms 
of criminal procedure, the reform introduces the possibility to retrospectively withdraw already 
agreed plea bargains of suspects who have cooperated with the police and to review future plea 
bargains 111.  The  scale  and  potential  consequences  of  the  amendments  on  Slovakia’s  fight 
against corruption would have merited a thorough debate and wide consultation under ordinary 

section 336d, from up to 2 years to up to 1 year; section 336, from 3-8 to 1-5 years; section 326, from 2-5 
years to 6 months to 3 years. Other corruption- and EU funds related crimes: section 225, from 1-5 years to 6 
months to 3.5 years; sections 261-263, from 12 to max. 10 years; and sections 266-268, from 12 to 10 years 
as maximum sanction level. 

105  Public sector corruption amendments include: section 329 of the Criminal  Code, the prescription period is 
shortened from 10 to 5 years; section 330, from 20 to 5 years; section 333, from 10 to 3 years; section 334, 
from 10 to 5 years; section 336c, from 5 to 3 years; section 336, from 10 to 3 years; section 336, from 5 to 3 
years; section 326, from 5 to 3 years; and section 344, from 10 to 5 years.  

106  On 11 March 2024, together with the amendments to the criminal and criminal procedure law, the decision of 
the Constitutional Court was published in the Official Journal as No. 41/2024 Coll. The Court suspended the 
effectiveness of Article I, Article II, point 39, Art. II, point 134 in the part relating to Article 567t(4) and Article 
XVII of the Act of 8 February 2024 amending Act No. 300/2005 Coll., the Criminal Act, as amended, and 
amending certain other acts. For the remaining parts, including the abolishment of the Special Prosecutor’s 
Office as a specialised body to fight high-level corruption, the Constitutional Court did not grant the motions 
to suspend the entry into force of the act.  

107  Judgment of the Constitutional Court of the 3 July 2024, case PL. ÚS 3/2024.  
108  According  to Article  50(6) of  the  Constitution,  ‘the  criminality  of  the  act  shall  be  judged  and  punishment 
imposed according to the law in force at the time when the act was committed. The later law shall apply if it 
is more favourable to the offender’ (i.e. lex mitior). Several corruption cases risk either not being opened before 
the court or closed with no possibility to reopen them for the same crime due to the shorter, new prescription 
periods, even if enforced only for one day. See Denník N (29 January 2024), The cases of Vyboh and Haščák 
will be forever time-barred if the Criminal Code is amended even for one day; See also Zastavme Korupciu, 
The largest database of corruption cases in Slovakia, www.kauzy.sk. 

109  See the Special Prosecutor Office’s Facebook entry of 19 January 2024. According to the Government, the 

reported data is not based on the analysis of cases.  

110  New section 40(3) of the Criminal Code: (3) Where damage has been caused or benefit obtained by the offence, 
the  punishment  of  the  offender  under  subsection  (1)(a)  or  (b)  may  be  dispensed  only  if  the  offender  has 
surrendered the proceeds of the offence and has paid for the damage caused by the offence or has entered into 
an agreement with the victim on compensation for the damage or on a method of remedying the consequences 
of the offence or on other compensation. 

111   New to section 371 of the Criminal Procedure Code: (2) The Minister of Justice shall also bring an appeal if 
the court has, by judgment, approved a plea agreement which is not reasonable or fair in view of the serious 
breach  of  the  substantive  provisions  of  the  law.  For  more  information  on  the  amendments  to  Slovakia’s 
institutional set-up to repress corruption, see in the next paragraph in this section. 

15 

 
 
legislative  procedure 112 .  Doubts  remain  also  regarding  the  justification  underpinning  the 
reform  to  amend  the  provisions  relating  to  corruption,  risking  not  to  be  based  on  a  robust 
evidence-base113.   

There has been no progress to limit the Prosecutor General’s powers to annul corruption 
investigations  and  prosecutions,  limiting  the promotion  of  a more  robust  track  record 
against high-level corruption114. The 2023 Rule of Law Report recommended to Slovakia to 
“[…] ensure the objectivity of prosecutorial decisions, including by continuing to advance the 
legislative amendments to restrict the power of the Prosecutor General to annul prosecutorial 
decisions with a view to promoting a robust track record of high-level corruption cases […]”115. 
In 2023, the Prosecutor General continued to use his powers under Section 363 of the Criminal 
Procedure Code to annul final police and prosecutor decisions in corruption investigations as a 
remedy for a breach of law116. As previously reported, this power resulted in the closure of 

112  The  reform,  combined  with  the  reorganisation  of  the  National  Crime Agency  NAKA  (see  below)  and  the 
dissolution of the Special Prosecutor’s Office (see pillar I above), carry the risk of promoting a more robust 
track record against high-level corruption, with the potential to limit the effectiveness in fighting corruption, 
at a time when state action had started showing positive results in high-level corruption cases, investigations 
and indictments. See Special Prosecutor’s Office (20 December 2023), Report on the activities of the Special 
Prosecutor’s Office  and the findings of the  Special Prosecutor's Office  on the state of legality for the year 
2022.  Transparency  International  (6  December  2023),  The  dissolution  of  the  Special  Prosecutor’s  Office 
comes at a time when it has real results, reporting that ‘of the 288 corruption cases decided by the Specialised 
Criminal  Court  between  2020  and  2022,  one  quarter  of  the  decisions  concerned  public  figures.  Not  only 
medical and police officers, but also representatives of the judiciary and high-ranking civil servants fell into 
this category. Compared to the past, higher bribes – over EUR 5 000, which make up a fifth of decisions – are 
also  more  punished’.  Procedurally,  the  decision  to  pass  the  reform  in  accelerated  procedure  has  evoked 
criticism for the lack of expert and public consultation and limited possibility of parliamentary debate. Under 
accelerated procedure, consultations are not required by law. See European Public Prosecutor’s Office  (18 
December 2023), Statement regarding the legislative amendments proposed by the Slovak Government, noting 
that the speed with which the Slovak Government intends to proceed with [the criminal law] amendments 
casts  serious  doubts  as  to  its  compliance  with  its  obligations  of  sincere  cooperation  (Article  4(3)  TEU); 
European Parliament (2024), Resolution of 17 January 2024 on the planned dissolution of key anti-corruption 
structures in Slovakia and its implications for the rule of law, 2023/3021(RSP), recitals E. and 1, emphasising 
that  the  unjustified  accelerated  legislative  process,  particularly  regarding  the  proposed  amendments  to  the 
criminal code and the dissolution of the Special Prosecutor’s Office, which threatens the integrity of judicial 
processes,  undermines  the  EU’s  fight  against  fraud  and  jeopardises  the  protection  of  the  EU’s  financial 
interests and the natural environment in Slovakia. Euractiv (2 February 2024), Opposition to Slovakian PM’s 
proposed criminal reforms grows. Transparency International (8 February 2024), The approved amendments 
to the criminal code weakens the rule of law and the fight against corruption. 

113  No ex-ante assessment of the reform’s potential impact for Slovakia’s effective fight against corruption was 
conducted, according to information received by the Government Office in the context of the country visit. 
Furthermore,  the  invoked  rulings  of  the  European  Court  of  Human  Rights  do  not  serve  to  justify  the 
amendments  at  least  regarding  corruption  and  corruption-related  provisions.  For  example,  concrete  links 
between the general prison overcrowding and the  actual amount of corruption offenders in prison was not 
established. Also, the Court’s ruling regarding more oversight over agreements of the police/ prosecutors with 
cooperating suspects cannot be interpreted as rendering the institute of cooperating suspect de facto ineffective.  

114  See section II above. 
115  2022 and 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 2. 
116  Input from Slovakia for the 2024 Rule of Law Report, p. 7, reporting that in criminal cases the extraordinary 
intervention in cassation by the Prosecutor General was considered in eight criminal cases, and the resolution 
on indictments in five cases from January-November 2023. From January 2021 to September 2023, a total of 
29 cases of the Special Prosecutor’s Office have been identified where section 363 was used by the Prosecutor 
General  in  politically  sensitive  cases  involving  high-level  officials  and  businessmen,  see  Denník  N  (12 
September  2023),  We  have  uncovered  how  Zilinka  uses  paragraph  363  in  favour  of  prominent  people. 
According to the Government, the Prosecutor General applied section 363 in two corruption cases between 
July 2023 until 6 February 2024.  

16 

 
 
investigations against several high-profile defendants held in pre-trial detention for corruption 
allegations without the possibility of a remedy against the annulment117, which triggered calls 
for more transparency of the process118. The initial legislative steps previously reported upon, 
which aimed to accelerate criminal proceedings and reduce pre-trial periods, and to limit the 
discretionary powers of the Prosecutor General to annul final decisions of public prosecutors 
or  police  officers  to  prosecute  corruption  cases 119,  remained  at  the  level  of  parliamentary 
readings  without  adoption  at  the  end  of  the  last  parliamentary  mandate  and  were  thus 
abandoned120. Section 363 may be revisited in the planned re-codification exercise in 2025-
2026 depending on future intragovernmental consultations121. However, due to the dissolution 
of the Special Prosecutor’s Office, the Prosecutor General will now be able to reassign high-
level corruption cases and give instructions even at an earlier investigatory stage than the final 
decision  of  investigators  and  prosecutors  in  high-level  corruption  investigations  and 
prosecutions,  as  required  by  Section  363  of  the  Criminal  Procedure  Code 122.  Against  this 
background,  combined  with  the  envisaged  police  reorganisation  and  the  dissolution  of  the 
Special  Prosecution  Office,  there  has  been  no  progress  on  the  implementation  of  the 
recommendation  made  in  previous  years,  and  the  situation  seems  to  have  been  further 
exacerbated. 

The risks to promoting a more robust track record against high-level corruption have 
become  more  imminent  due  to  a  continued  lack  of  coordination  among  corruption 
investigators  and  prosecutors.  The  2022  and  2023  Rule  of  Law  Report  recommended  to 
Slovakia to “improve the coordination among the different law enforcement entities […] with 
a  view  to  promoting  a  robust  track  record  of  high-level  corruption  cases” 123 .  In  2023, 
investigations on charges of bribery, procurement fraud and other crimes were opened against 

117  For  example,  on  31 August  2021, Article  363  of  the  Code  of  Criminal  Procedure  was  invoked  to  annul 
corruption charges against a former director of the Slovak Secret Service (SIS) and four other individuals held 
in custody. Euractiv (2021), Prosecutor General dismisses high-level corruption charges; Notably, Article 363 
of  the  Criminal  Code  of  Procedure  was  considered  controversial  already  before  it  was  used  in  high-level 
corruption cases, due to which the government committed itself to explore narrowing down this provision in 
April  2020.  Information  received  from  Transparency  International  in  the  context  of  the  country  visit  to 
Slovakia. See also Zastavme korupciu interview, actuality.sk, Let’s stop corruption: Žilinka can go to court 
using Section 363 (25 January 2023). 

118  Transparency International (2021), The cancellations call for a clear justification in front of the public. The 
legality of the criminal charges had previously been upheld by the Supreme Court and the Constitutional Court, 
see 2023 and 2022 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 14 (for 
2023) and p. 15 (for 2022). 

119  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, pp. 13-14. 
120  Input from Slovakia for the 2024 Rule of Law Report, p. 5.  
121  Information received from the Ministry of Justice in the context of the country visit. 
122  Although  the  Special  Prosecutor  Office  is  formally  part  of  the  Prosecutor  General’s  Office,  the  Special 
Prosecutor Office dealing with sensitive cases was created to provide a high degree of autonomy. The Special 
Prosecutor’s Office dissolution and the consequent transfer of competence over high-level corruption cases to 
the Prosecutor General was not justifiable by a lack of effectiveness. On the contrary, a recent analysis of the 
Special  Prosecutor’s  Office  data  indicates  that  95  percent  of  the  corruption  cases  sent  to  the  Specialised 
Criminal  Court  by  the  Special  Prosecutor’s  Office  between  2020-2022  ended  in  successful  convictions  of 
corruption  crimes.  Transparency  International  (2023),  The  dissolution  of  the  Special  Prosecutor’s  Office 
comes at a time when it has real results, reporting that ‘of the 288 corruption cases decided by the Specialised 
Criminal Court between 2020 and 2022, one quarter of the decisions concerned public figures. The Chief of 
the Special Prosecutor’s Office offered to the Government to step down as an alternative to the abolishment 
of the entire specialised office, information received from the Special Prosecution Office. Alternative measures 
were  however  not  considered  according  to  information  received  from  the  Special  Envoy  of  the  Slovak 
Government. 

123  2022 and 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 2. 

17 

 
 
high-ranking  public  officials124,  including  members  of  Parliament,  state  agencies  and  other 
individuals  closely  connected to  politics, while some high-level  corruption defendants  were 
indicted  in  cases  from  previous  years125 or  entered  plea  bargains126.  Charges  were  brought 
again, also in 2023, in at least one case that had previously been annulled by the Prosecutor 
General on the basis of Section 363 of the Criminal Procedure Code127. In 2023, the National 
Crime Agency recorded 241 (compared to 292 in 2022) new cases of corruption128. The number 
of individuals convicted for corruption offences remained the same with  118 convictions in 
2023129. Foreign  bribery  remains an area with  low  enforcement levels,  with one case being 
reported130. The level of human and financial resources for corruption cases within the police 
and the prosecution service, as well the availability of technical equipment, are not considered 

124  See The Guardian (29 June 2023), Slovakian anti-corruption official arrested in corruption inquiry – Head of 
Agricultural Payment Agency held in investigation into alleged misuse of EU and state funds; The Slovak 
Spectator (11 August 2023), Police detain ex-top cop Gaspar again; The Slovak Spectator (26 October 2023), 
Charged ex-minister elected presiding officer of parliament; The Slovak Spectator (11 December 2023), New 
charges against ex police chief, oligarch and others; News agency SME.sk (19 February 2024), Gašpar sent 
me  for a  bribe  directly to Bödör, Slobodak described. The trial of the oligarch began before the statute of 
limitations. See also Prosecutor-General (20 December 2023), Report of the Prosecutor General of the Slovak 
Republic on the activities of the Prosecutor's Office and the findings of the Prosecutor's Office on the state of 
legality in the Slovak Republic.  

125  For example, Denník (19 March 2024), The Special Prosecutor’s Office indicted the head of the government 
office  (and  two  former  managers  of  the  state-owned  company  MH  Management  for  collusion  in  public 
procurement and breach of duty in managing foreign property). 

126  According to the input from Slovakia for the 2024 Rule of Law Report, p. 36, plea bargains were concluded 
with 42 suspects or accused. The Slovak Spectator (22 August 2023), Judge approves infamous ex-top police 
official’s plea deal. 

127  Information  received  from  Special  Prosecutor  Office  in  the  context  of  the  country  visit  to  Slovakia.  New 
charges can be brought by investigators by providing new evidence different from the original case. See also 
2023 Rule of Law Report, Country chapter on the rule of law situation in Slovakia, p. 14. See also Reuters (24 
November 2022), Slovak police renew bribery charge against central bank governor Kazimir – lawyer; Press 
Agency  SITA,  Kažimír  is  charged  again. This  is  the  same act  for  which  his  prosecution  was  cancelled  by 
Žilinka (24 November 2022). See also, SME.sk (29 November 2022), The arguments of Žilinka's office are 
denied by courts and witnesses. 

128  This  figure  only  indicates  crimes  under  the  competence  of  the  National  Crime Agency,  excluding  other 
corruption  offences  classified  under  the  Criminal  Code  and  other  specific  legislation.  There  is  no 
comprehensive, public annual report summarising and evaluating the agency’s results. Analyses, statistical 
surveys and annual reports of its branches are produced in-house on an annual basis, for data comparison and 
latest  publicly 
crime and security trend identification, yet only for internal management purposes.  The 
available 
see 
2016), 
https://www.minv.sk/swift_data/source/policia/naka_opr/opr/inf_o_cinnosti_naka/Informacia%20o%20cinn
osti%20NAKA%20P%20PZ%20za%20rok%202016%20public.pdf.  The  Ministry  of  Interior  publishes 
monthly  crime  statistics  online.  The  Government  programme  contains  a  commitment  to  develop  a  police 
information system for the public, including crime statistics in an up-to-date format. 

annual 

report 

2017 

from 

year 

(for 

the 

is 

129  Crimes  included  in  the  statistics  are  passive  corruption  (section  328),  active  and  passive  corruption  – 
procurement  of  items  of  general  interest  (sections  333  and  329),  trading  in  influence (section  336),  sports 
corruption (section 336b), see input from Slovakia for the 2024 Rule of Law Report, p. 36, noting that this is 
data from January to November 2023.  

130  This case risks being time-barred if the proposed amendments to the Criminal Code and other related acts 
entered into force; information received in the context of the country visit from the Office of the Prosecutor 
General/  Special  Prosecutor  Office  in  the  context  of  the  country  visit.  For  previous  years,  see  also 
Transparency International, Exporting Corruption (2022), p. 72, referencing little to no enforcement in foreign 
bribery cases and as main weaknesses jurisdictional limitations; a failure to hold companies responsible for 
subsidiaries, joint ventures and agents; political interference in enforcement and a lack of independence; a lack 
of public awareness; and a lack of resources, skilled investigators and prosecutors to make and process mutual 
legal assistance (MLA) requests.  

18 

 
 
fully adequate to carry out their tasks, particularly for complex high-level corruption cases131. 
Shortages of specialised police investigators and financial data analysts for corruption-related 
crimes have been highlighted by several stakeholders, including the EPPO, since they continue 
to  pose  a  significant  obstacle  to  the  effective  investigation  of  corruption-related  crimes  in 
practice132.  Coordination  between  the  relevant  anti-corruption  entities,  among  different  law 
enforcement agencies as well as between the prosecution service and the police, continue to 
present  significant  obstacles  to  the  effective  prosecution  of  corruption133.  The  Government 
plans  to  significantly  reorganise  NAKA  so  that  it  is  integrated  as  a  regular  anti-corruption 
police unit into the organised crime department instead of being a specialised agency. NAKA 
police  officers  who  are  specialised  in  corruption  investigations  would  be  transferred  to  the 
thematic regional police offices of the new anti-corruption unit 134. The Government justifies 
the  significant  re-organisation  and  change  in  mandate  of  the  specialised  NAKA  police  as 
necessary  to  enhance  the  efficiency  of  the  police  to  tackle  crime,  including  high-level 
corruption cases135. The Government envisages to reduce the scope of its competence136. The 
scope  of  competence  of  the  new  anti-corruption  unit  is  defined  by  law  on  the  basis  of  the 
severity of the crime, and given that with the criminal law reform corruption penalties have 
been lowered, less corruption cases will fall in the remit of this new unit and more corruption 
cases will go to a lower level district directorates of the police force137. As part of the changes, 
a new analytical hub within the new anti-corruption unit will be created. The analytical hub 
will be tasked to register and select incoming corruption reports by citizens or the police, with 
most corruption cases being transferred to district police in the future138. The Government also 

131  Information received from the Office of the Prosecutor General/ Special Prosecutor’s Office/ Association of 
Judges/  NAKA  in  the  context  of  the  country  visit  on  the  level  of  resources  for  prosecutors  and  police, 
particularly highlighting shortages regarding technical equipment and operative police officers. 

132  Information received from the EPPO/ Whistleblower Protection Office in the context of the country visit to 

Slovakia. See contribution from the EPPO for the 2023 Rule of Law Report, p. 4. 

133  Information received from the Special Prosecutors’ Office in the context of the country visit to Slovakia, noting 
that coordination between the Office and the National Crime Agency was at an adequate level in 2023, while 
there  is  a  dependence  on  and  lack  of  cooperation  with  other  police  bodies,  when  it  comes  to  information 
technologies  that  the  National  Crime Agency  does  not  have  in  its  remit.  Cooperation  has  reportedly  not 
improved  with  the  Intelligence  Service,  military  intelligence  and  other  similar  bodies.  See  also  BIRN  (13 
December 2023), Exiled in Bosnia: Corrupt and accused Slovak police officers find comfort abroad.  

134  Information received from the Government, indicating that the NAKA’s Bratislava regional office is planned 
to be merged with the regional office West, while the regional office West, Centre and East continue to exist. 
135  According to information received from the Police President in the context of the country visit to Slovakia, 
the reorganisation of the National Crime Agency’s is a measure to increase efficiency with the goal for lower-
level police entities to deal with cases, as currently around 40% of complaints are reportedly dismissed or 
suspended.  See  in  this  context  also  Government  Programme  Statement  of  the  Slovak  Republic  2023-2027 
(2023). See Transparency International (6 December 2023), The dissolution of the Special Prosecutor’s Office 
comes at a time when it has real results, reporting that ‘of the 288 corruption cases decided by the Specialised 
Criminal  Court  between  2020  and  2022,  one  quarter  of  the  decisions  concerned  public  figures.  Not  only 
medical and police officers, but also representatives of the judiciary and high-ranking civil servants fell into 
this category. Compared to the past, higher bribes – over EUR 5 000, which make up a fifth of decisions – are 
also more punished’. See for public statement of the Minister of Justice on the  abolishment of the National 
Crime  Agency,  Euractiv  (11  January  2024),  Fico’s  government  mulls  dismantling  agency  that  handles 
corruption.  For  more  information  on  the  abolishment  of  the  Special  Prosecutor’s  Office,  dealing  with  the 
corruption cases of the National Crime Agency, see above on section 363 of the Criminal Procedure Code.  
136  Information  received  from  the  Ministry  of  Interior/Police  President  in  the  context  of  the  Member  State 

consultation. 

137  Written contribution from NAKA and Police Force in the context of the country visit to Slovakia, p. 8.   
138  This is referred to as ‘selective jurisdiction’ by the Government. Under specific conditions, the NAKA already 
applies the so-called selective jurisdiction: 'if the operational and investigative activity or the investigation 

19 

 
 
 
envisages  to  reduce  the  staff  of  the  new  anti-corruption  unit139.  There  have  been  reports  of 
political appointments, temporary suspensions and abolishment of key police positions140. The 
temporary suspensions of police officers, despite their protected whistleblower status141, were 
challenged before the courts 142. As previously reported, the Ministry of Interior continues to 
register  a  low  interest  of  citizens  in  cooperating  with  the  police  due  to  the  lack  of  trust  in 
successful criminal proceedings and possible repercussions for the crime-reporting individual 
in  the course of the proceedings143. The effectiveness  of investigations  continues  also  to  be 
hampered by the lack of a secure, central electronic information exchange system and central 
access to databases that hold relevant information for the police and the prosecution144. Against 
this  background,  there  has  been  no  progress  regarding  the  implementation  of  the 
recommendation made in previous Rule of Law Reports. 

The  Government  withdrew 
legislative  amendments  to  Slovakia’s  whistleblower 
protection law submitted to Parliament in fast-track procedure in reaction to significant 
criticism. On 1 July 2023, amendments to Slovakia’s Whistleblowing Act145 transposing the 

carried out by the substantively competent unit so requires, due to the manner of commission of the offence, 
its seriousness and scope, the procedural parties or other important interest', see Article 3(5) Regulation of the 
Minister of the Interior, No. 175 of 30 December 2010, on the definition of the competence of the units of the 
Police  Force  and  the  units  of  the  Ministry  of  the  Interior  in  the  detection  of  criminal  offences,  in  the 
identification of their perpetrators and on the procedure in criminal proceedings, as amended. 

139  The Government reported plans to transfer several police officers from the NAKA, however without reducing 

the number of police officers specialised in the investigation of corruption crimes. 

140  News  agency  SME.sk  (27  October  2023),  Minister  Šutaj  Eštok  temporarily  suspended  six  police  officers 
around  Ján  Čurilla. A  new  Chief  of  Police  for  the  Inspection  Service  Office  of  the  Ministry  of  Interior,  in 
charge of investigating police internal corruption, was appointed, whose prosecution was twice annulled by 
the  Prosecutor  General’s  Office,  see  Denník  N  (2  November  2023),  Zurian  was  promoted  as  director  of 
inspection by Shutai Eshtok; Daily Aktuality (2 November 2023), Candidate for Chief of Police Inspection 
Zurian: I want to end the war in the police, I will set up a new team. Denník N (14 February 2024), Who is 
Pavol Gašpar, whom the government unexpectedly proposed as the head of SIS? Only the president can stop 
it. 

141  News agency SME.sk (27 October 2023), Office for Whistleblower Protection questions off-service status of 
Čurilla;  Press  release  by  the  Whistleblower  Protection  Office  in  reaction  to  the  draft  amendment  to  the 
Whistleblower Protection Law (15 December 2023). 

142  The Minister's decision to suspend was challenged by police officers first at the Bratislava IV Municipal Court 
and then the Regional Court in Bratislava, requesting the issuance of an urgent measure on the grounds of their 
protected  status  as  whistleblowers  and  relying  on  the  fact  that  the  Minister  had  not  sought  the  previous 
approval of the Office for the Protection of Whistleblowers. Denník N (6 Feb 2024), The regional court upheld 
the Minister’s decision. Two police officers cannot return to work, noting that a civil court cannot decide on 
an urgent measures. Only administrative courts can decide whether the Ministry of Interior acted lawfully. See 
also the statement of the Whistleblower Protection Office (February 2024). In the meantime, the Minister of 
Interior  has  filed  a  criminal  complaint  against  the  decision  of  the  Special  Prosecutor  Office  to  grant 
whistleblower protection statuses to the National Crime Agency police officers, see News agency Teraz.sk (27 
November 2023), Eštok filed a criminal complaint for providing protection to the Čurillas. 

143  See 2023 Rule of Law Report, Country Chapter on the rule of law situation, p. 16 and footnote 125. 
144  Information  received  from  the  National  Crime  Agency  in  the  context  of  the  country  visit  to  Slovakia, 
particularly with a view to the lack of direct access to data of central tax offices, where information needs to 
be requested in writing causing delays in investigations. According to the Ministry of Interior, the set-up of 
reliable,  efficient  and  secure means  of  communications  is essential  to  exchange  information  on  corruption 
investigations in a targeted, timely and safe manner.  

145  Law  amending  Act  No.  54/2019  on  the  Protection  of  Whistleblowers  of  Anti-Social  Activity  and  on 
Amendments and Supplements to Certain Acts and amending Act No. 327/2005 on the provision of legal aid 
to  persons  in  material need  and  amending Act  No.  586/2003  on  advocacy.  See  2023  Rule  of  Law  Report, 
Country Chapter on the rule of law situation in Slovakia, p. 16. 

20 

 
 
related  EU  Directive 146  entered  into  force 147 .  Following  elections,  the  new  Government 
submitted further draft amendments to the Whistleblower Protection Act to Parliament within 
the same year, on 6 December 2023148. Despite the wide-ranging legislative changes proposed 
to  the  act,  they  were  submitted  in  a  fast-track  legislative  procedure 149.  A  wide  range  of 
stakeholders 150,  as  well  as  the  European  Commission,  raised  serious  concerns  regarding, 
among others, the exclusion of police officers from the whistleblower protection regime in the 
future, and the possibility to review and to revoke retroactively already granted protection to 
members of the police force151. The Government withdrew the proposed amendments on 21 
February 2024152, announcing its intention to reintroduce amendments in ordinary legislative 
procedure at a later stage153. In 2023, similarly to the previous year, Slovakia’s Whistleblower 
Protection Office processed a total of 173 reports, out of which 71 were eligible whistleblowing 
reports concerning a work-related context (compared to 39 in the previous year), including 33 
corruption-related cases (compared to 13 in the previous year)154. As in previous years, active 
reporting enabling the detection of corruption and other crimes remains low155, especially in 

146  Directive 2019/1937 of 23 October 2019 on the protection of persons who report breaches of Union law. 
147  Some  of  its  provisions  concerning  internal  whistleblowing  systems  and  sanctions  entered  into  force  on  1 

September 2023. See also input from Slovakia for the 2024 Rule of Law Report, p. 30. 

148  Proposed Amendments to Act No. 54/2019 Coll. on the Protection of Whistleblowers as amended by Act No. 
189/2023 Coll. The bill and the proposal for an accelerated legislative process were originally submitted to 
the cabinet by the head of the Government Office, but in January 2024 the cabinet decided that both should be 
listed by the Minister of Interior, see Press release of the Ministry of Interior (20 February 2024). 

149  According to Slovak law, such fast-track legislative procedures do not require prior consultation of experts or 

the public nor a substantive debate in Parliament. See for more details above in this text. 

150  See  European  Public  Prosecutor’s  Office  (18  December  2023),  Statement  regarding  the  legislative 
amendments proposed by the Slovak government. European Parliament resolution of 17 January 2024 on the 
planned  dissolution  of  key  anti-corruption  structure  in  Slovakia  and  its  implications  for  the  rule  of  law 
(2023/3021(RSP)); European Parliament resolution of 17 January 2024 on the planned dissolution of key anti-
corruption  structure  in  Slovakia  and  its  implications  for  the  rule  of  law  (2023/3021(RSP)) Whistleblower 
Protection Office, Press release (15 December 2023), Interference with the law on whistleblower protection 
will bring legal uncertainty, obstruct investigations and deter whistleblowers. See also the letter of 27 civil 
society organisations sent to Slovakia’s Minister of Justice, Minister of Interior, Speaker of Parliament and all 
members  of  the  Parliament,  as  published  for  example  here:  ARTICLE19  -  Global  Campaign  for  Free 
Expression (9 January 2024), Slovakia: Reject proposed changes to whistleblower legislation. Government 
Accountability  Project/  European  Whistleblowing  Institute  (22  December  2023),  Memorandum  regarding 
breaches of EU law by the proposed Amendment to Act no. 54/2019 Coll. on the Protection of Whistleblowers 
as amended by Act No. 189/2023 Coll. 

151  Notably,  the  retroactive  revoking  was  not  limited  to  police  staff  only,  but  to  apply  horizontally  to  all 
whistleblowers, risking to seriously undermine Slovakia’s corruption prevention system and enforcement of 
Union law in general. 

152  Ministry of Interior – Press release (20 February 2024), The Minister of the Interior will submit a proposal to 

the Government to withdraw the amendment to the Act on the Protection of Whistleblowers. 

153  The Slovak Spectator News Digest (20 February 2024): Minister’s plan to rewrite whistleblowing bill again. 
154  See written contribution by the Whistleblower Protection Office in the context of the country visit in Slovakia, 
the  cases  related  to  bribery  (5  reports),  abuse  of  authority  (10  reports),  public  procurement  (5  reports), 
unauthorised  use  of  public  funds  or  property  (8  reports),  and  conflict  of  interest  (5  reports). The  Office’s 
mandate focuses on the reporting of breaches of law and the protection against retaliatory measures based on 
the principles of confidentiality and anonymity. The target audience for the Office is both the public and the 
private sector. The Office is accountable to the Parliament, providing annual reports. See also Report on the 
activities  of 
(January  2024), 
for 
https://www.oznamovatelia.sk/aktivity-uradu-prehlad-za-rok-2023/.  

to  protect  whistleblowers 

the  year  2023 

the  Office 

155  Input  from  Slovakia  for  the  2024  Rule  of  Law  report,  p.  41,  indicating  that  the  low  level  of  reporting  of 

corruption presents the biggest obstacle to the detection of corruption. 

21 

 
 
areas where the private sector engages with the state156. Apart from these practical challenges, 
there were reportedly incidents of discrediting of the Whistleblower Protection Office by high-
level Government public official’s public reported157. 

There  has  been  no  progress  yet  to  regulate  lobbying  activities.  The  2023  Rule  of  Law 
Report  recommended  to  Slovakia  to  “introduce  proposals  to  regulate  lobbying  […]” 158 . 
According  to  the  2023-2027  Programme  Statement  of  the  new  Government,  lobbying 
legislation shall be proposed during its mandate to regulate the contacts of public officials with 
persons representing the interests of individuals or organisations to strengthen transparency in 
the decision-making process159. The  Government  Office has been  assigned with  the task of 
proposing the lobbying bill, but there is no indicative timeline available yet160. Considerations 
within the Government range from proposing a binding law to non-binding rules on lobbying161. 
Since  2020,  Slovakia  has  reiterated  and  postponed  its  commitment  to  adopt  new  lobbying 
rules162 and consequently, lobbying remains unregulated. Against this background, there has 
been  no  progress  yet  regarding  the  implementation  of  the  recommendation  made  in  the 
previous years. 

There has been no progress to reform Slovakia’s conflict of interest rules. The 2023 Rule 
of  Law  Report  recommended  to  Slovakia  to  “[…]  strengthen  the  legislation  on  conflicts  of 
interest […]”163 concerning members of Parliament, judges, prosecutors, public officials, and 
civil servants. Some conflicts of interest aspects are regulated in sectoral acts164 and, ethical 

156  High-risk corruption areas in this context are in particular bribes from entrepreneurs to public officials for the 
provision of subsidies, non-refundable financial contributions, and lucrative contracts, among others. See also 
2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 17. 

157  Statement of the head of the Government Office asking the Whistleblower Protection Office not to jeopardise 
the political independence of the Office [through public statements] and to politicise the office in a similar 
way  as  the  Special  Prosecutor  Office  [which  was  abolished  on 20  March  2024 on  these  grounds],  see  the 
Government Office’s response to the Whistleblower Protection Office’s analysis of the proposed amendments, 
as reported on Press Agency SITA (15 December 2023), According to Gedra, the amendment to the Act on the 
Protection  of  Whistleblowers  improves  the  provisions  so  that  the  institute  cannot  be  abused.  For  the 
Whistleblower Protection Office’s analysis of the proposed amendments, see its press release (15 December 
2023), Interventions in the Whistleblower Protection Act will bring legal uncertainty, thwart investigations 
and deter whistleblowers. See also in this context Whistleblower Protection Office (January 2024), Nonsense 
about our office – we refute hoaxes. 

158  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 2. 
159  Government Programme Statement of the Slovak Republic 2023-2027 (2023). 
160  Lobbying used to be the competence of the Office of the Deputy Prime Minister, who will reportedly not deal 

with the new lobbying rules, see input from Slovakia for the 2024 Rule of Law Report, p. 30. 
161  Information received from the Government Office in the context of the country visit to Slovakia. 
162  Cf. 2020, 2021, 2022, 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 

8 (for 2020), p. 13 (for 2021), p. 16 (for 2022), and p. 17 (for 2023). 

163  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 2. 
164  See,  for  public  officials,  Constitutional  Act  no.  357/2004  on  the  protection  of  the  public  interest  in  the 
performance of the functions of public officials, https://www.slov-lex.sk/pravne-predpisy/SK/ZZ/2004/357/; 
civil servants, Act no. 55/2017 on public service, https://www.slov-lex.sk/pravne-predpisy/SK/ZZ/2017/55/ ; 
for the police, see Act no. 73/1998 on the civil service of members of the Police Force, the Slovak Information 
Service, the Prison and Judicial Guard Corps of the Slovak Republic and the Railway Police, https://www.slov-
lex.sk/pravne-predpisy/SK/ZZ/1998/73/  ;  for  judges,  see Act  no.  385/2000  on  Judges  and  Judicial  Panel 
Members and on Amendments to Certain Laws, https://www.slov-lex.sk/pravne-predpisy/SK/ZZ/2000/385/. 
Detailed  recommendations,  including  on  expanding  the  definition  of  conflicts  of  interest  and  the  scope  of 
incompatibilities can also be found in UN Conference of the State Parties to the United Nations Convention 
against  Corruption,  Implementation  Review  Group  (5  July  2023),  State  of  implementation  of  the  United 
Nations 
CAC, 
– 
Convention 
CAC/COSP/IRG/II/4/1/Add.6, p. 10. 

Corruption 

Summary: 

Executive 

Slovakia, 

against 

22 

 
 
codes  and  guidelines  exist  for  judges,  prosecutors  and  members  of  the  financial 
administration 165.  The  Civil  Service  Council,  as  a  collective  body,  is  responsible  for  the 
oversight of the principles of civil service and the respect of the non-binding Code of Ethics of 
Civil Servants166. For high-level public officials, some regulations are in place167, but no Code 
of Ethics  yet168.  The Government  committed to  adopting  such  a Code of Ethics to  promote 
ethics and integrity169. To do so, Slovakia reports to have identified the scope of high-level 
public officials at risk to corruption170. As regards gifts and other benefits, there are general 
rules in place and some Ministries have dedicated rules but there isn’t a detailed uniform policy 
with appropriate practical guidance for the Government in place, including as regards reporting 
and  publication  requirements 171 .  There  is  no  intention  of  the  Government  as  previously 
envisaged,  to  extend  the  personal  scope  of  the  future  Code  of  Ethics  for  members  of  the 
Government  and  government  officials  to  members  of  the  Parliament 172,  although  this  was 
previously  considered  and  no  such  Code  of  Conduct  currently  exists  for  members  of 
Parliament173.  Post-employment  restrictions  for  high-ranking  officials  to  prevent  revolving 

165  No  modifications  were  introduced  to  the  Code  of  Conduct  for  the  judiciary  and  the  prosecutors’  code  of 
conduct has not been reviewed in 2023. See in this context the recommendation of the Ethics Commission of 
the Prosecutor’s Office, Information on the activities of the Ethics Commission of the Prosecutor’s Office in 
2022, https://www.genpro.gov.sk/extdoc/14471. 

166  Input from Slovakia for the 2024 Rule of Law Report, p. 27. 
167  See Constitutional Act No. 357/2004 Coll. on the protection of the public interest in the performance of the 
functions of public officials, as amended, applying to the president, members of parliament, members of the 
government,  heads  of  other  central  bodies  of  state  administration,  state  secretaries,  general  secretaries  of 
service offices. According to the Constitutional Act, ‘a public official is obliged to promote and protect the 
public interest while performing his duties. When performing his function, a public official must not prioritize 
his personal interest over the public interest’. 

168  The Code of Ethics for Civil Servants is not obligatory for all ministries and central authorities yet, even if it 
concerns  particularly  vulnerable  high-level  positions.  See  input  from  Slovakia  for  the  2024  Rule  of  Law 
Report, p. 27, noting that each institution identifies their corruption risks in their own way. A methodology to 
identify corruption risks and positions at risk is provided for by the Government Office, but it is not mandatory. 
169  Government Programme Statement of the  Slovak Republic 2023-2027 (2023). See in this context also the 
recommendations  made  by  GRECO  on  the  introduction, proper monitoring  and  enforcement  of  a  Code  of 
Ethics for persons with top executive functions (ministers, state secretaries, political advisors and senior civil 
servants closely associated with decision-making), Greco, 5th Evaluation Round – Second Compliance Report 
(17 April 2024), Slovakia, GrecoRC5(2023)9, paras. 24-27 p. 5.  

170  Information received from the Government in the context of the country visit to Slovakia. See in this context 
also UN Conference of the State Parties to the United Nations Convention against Corruption, Implementation 
Review Group (5 July 2023), State of implementation of the United Nations Convention against Corruption – 
Executive Summary: Slovakia, CAC, CAC/COSP/IRG/II/4/1/Add.6, p. 4. 

171  See Constitutional Act no. 357/2004 Coll. On the protection of the public interest in the performance of the 
functions  of  public  officials,  as  amended.  However,  detailed  rules  on gifts  exist  in  four  Ministries  but  not 
across the entire Government,  while different thresholds apply to different categories of civil servants and 
public officials, see UN Conference of the State Parties to the United Nations Convention against Corruption, 
Implementation  Review  Group  (5  July  2023),  State  of  implementation  of  the  United  Nations  Convention 
against  Corruption  –  Executive  Summary:  Slovakia,  CAC,  CAC/COSP/IRG/II/4/1/Add.6,  p.  5.  See  in  this 
context  also  Greco,  5th  Evaluation  Round  –  Second  Compliance  Report  (17  April  2024),  Slovakia, 
GrecoRC5(2023)9,  pp.  2-4,  concluding  that  regarding  recommendation  viii,  a  uniform  development  was 
missing throughout the entire Government. 

172  Information received from the Government Office in the context of the country visit to Slovakia, noting that 
the Parliament’s own initiative would be key in this context. In turn, preparations had been undertaken by the 
Ministry of Justice and the Parliament under the previous Government, yet no proposal was presented. 

173  Cf.  also  UN  Conference  of  the  State  Parties  to  the  United  Nations  Convention  against  Corruption, 
Implementation  Review  Group  (5  July  2023),  State  of  implementation  of  the  United  Nations  Convention 
against Corruption – Executive Summary: Slovakia, CAC, CAC/COSP/IRG/II/4/1/Add.6, p.4. 

23 

 
 
doors is not comprehensively regulated174 and the Government has not made any commitments 
to introduce post-employment rules in the Government programme175. The establishment of an 
Office for the Protection of Public Interest, which would oversee  conflicts of interest along 
with violations of codes of conduct and lobbying176, most asset declarations of public officials 
and other civil servants177, and tax declarations, is no longer envisaged at this stage178. Against 
this  background,  there  has  been  no  progress  regarding  the  implementation  of  the 
recommendation made in the 2023 Rule of Law Report. 

There has been no progress yet to improve Slovakia’s asset declaration system. The 2023 
Rule of Law Report recommended to Slovakia to “[…] strengthen the legislation on […] asset 
declarations”179 concerning members of Parliament, judges, prosecutors, public officials, and 
civil  servants.  180 .  For  the  time  being,  the  system  of  asset  declarations  for  members  of 
Parliament, judges, prosecutors, public officials, and civil servants remains decentralised and 
fragmented 181 .  The  Parliamentary  Committee  responsible  for  the  publication  of  asset 
declarations  of  members  of  Parliament  reports  that  the  declarations  of  all  members  were 
submitted on time until the end of April 2023 and published in November 2023182. The new 
Government  committed  in  its  Programme  Statement  to  seek  constitutional  and  legal 
consensus183 for the introduction of single rules for the submission of asset declarations of all 

174  They are partially covered under Constitutional Act no. 357/2004 on the protection of the public interest in the 
performance of the functions of public officials. However, as also Greco concludes, the recommendations have 
not been implemented yet to broaden post-employment restrictions in respect of ministers and state secretaries 
and to lay such down for advisers and senior civil servants involved in top executive functions, while also 
broadening rules on persons with top executive functions to expressly prevent lobbying activities towards the 
government  for  a  lapse  of  time  after  they  leave  government,  see  Greco,  5th  Evaluation  Round  –  Second 
Compliance Report (17 April 2024), Slovakia, GrecoRC5(2023)9, recommendation ix, paras. 24-27, p. 5. 
175  Government Programme Statement of the Slovak Republic 2023-2027 (2023). Slovakia may address the Greco 
recommendations to broaden post-employment restrictions in respect of ministers and state secretaries and to 
lay down restrictions for advisors and senior civil servants involved in executive functions in the future Code 
of Ethics for persons in top executive functions, which would however be non-binding guidelines. See Greco, 
5th  Evaluation  Round  –  Second  Compliance  Report  (17  April  2024),  Slovakia,  GrecoRC5(2023)9, 
recommendation ix, p. 5.  

176  Noviny Plus, MP Vetrák is preparing a "whip" to control MPs' property of deputies (5 August 2022). 
177  Municipal deputies and members of the National Council were envisaged to be subject to such oversight. 
178  Information received from the Government Office in the context of the country visit to Slovakia. As previously 
reported,  the  preparation  of  an  amendment  to  the  Slovak  Constitution  had  been  announced  by  the 
Constitutional and Legal Affairs Committee of Slovakia’s Parliament in August 2022, to be able to regulate 
conflicts of interest and tax returns of public officials. The bill provided for the establishment of an Office for 
Protecting Public Interest by the end of the last parliamentary term, see 2023 Rule of Law Report, Country 
Chapter on the rule of law situation in Slovakia, p. 18. 

179  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 2. 
180  Information received from the Government Office in the context of the country visit to Slovakia. 
181  2023, 2022 and 2021 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 18 
(2023), p. 16 (for 2022) and p. 14 (for 2021). See also input from Slovakia for the 2024 Rule of Law Report, 
p. 29, indicating that there are eight different norms in the current legislative framework for asset declarations 
for  different  categories  of  obliged  persons,  all  requiring  to  provide  different  amounts  of  information  and 
different disclosure levels. 

182  Written contribution received from the Administration of the Slovak National Council in the context of the 
country visit, p. 1. The Committee had reduced the time between submission and publication of declarations 
in 2022, following significant delays in 2020 and 2021. Cf. 2023 Rule of Law Report, Country Chapter on the 
rule of law situation in Slovakia, p. 18. 

183  The introduction of an electronic asset declaration system requires several legal amendments, including an 
amendment of the Constitutional Act No. 357/2004 Coll. on Public Interest Protection in the Performance of 
Office of Public Officials, requiring a 3/5 majority in Parliament. 

24 

 
 
public  officials  with  particular  emphasis  on  their  digitalisation 184 .  The  analysis  and 
recommendations185 for  Slovakia’s  asset  declaration  system  carried  out  by  the  Government 
Office’s  Department  for  Corruption  Prevention  in  March  2023 186  has  gone  through  the 
legislative  procedure  but  was  not  endorsed  before  the  end  of  the  last  mandate  of  the  last 
Parliament due to its status as interim government. A new complementary analysis, specifically 
on the electronic submission system, will be prepared by the end of 2024187. Its introduction 
will be one of the priorities of the Action Plan under the new National Anti-Corruption Strategy 
for the years 2024-2029. Against this background, since there is so far only a commitment for 
further action, there has been no progress regarding the implementation of the recommendation 
on asset declarations made in the 2023 Rule of Law Report. 

The Government plans to reform the legislative framework on the functioning of political 
parties, raising questions as to its need and proportionality. The main law regulating the 
financing  of political  parties is  the Act  on Political  Parties and Movements188. It  allows for 
donations to political parties of up to EUR 300 000 per calendar year, while donations from 
foreign entities and anonymous donors are banned189. The Government intends to modify the 
main law with the aim to ensure that public funds earmarked for political party operations are 
exclusively used for that purpose190. Since such a new legal obligation would be open to audit 
controls, it carries the risk of excessive access by the Government to information on the internal 
operations  of  political  parties,  when  comprehensive  transparency  requirements  on  political 
parties’  finances  are  already  in  place 191.  Amendments  to  the  criminal  offence  of  electoral 
corruption in political party finance have not entered into force, as previously planned for 1 
April  2024 192 .  Regarding  party  campaign  finance,  previously  anticipated  risks  of 
circumvention of transparency obligations have reportedly materialised in practice during the 

184  Programme Statement of the Government of the Slovak Republic, 2023-2027. 
185  It was recommended to prepare a legislative  proposal to unify and streamline  Slovakia’s fragmented asset 
declaration rules and to amend the Constitutional Act, in order to introduce an electronic asset declaration 
system, see 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 18. The 
analysis further recommended the monitoring and thorough verification of the content of asset declarations 
and their disclosure, as confirmed by the input from Slovakia for the 2024 Rule of Law Report, p. 29. 

186  Analysis  of  the  current  system  of  submitting  the  asset  declarations  and  proposal  for  its  improvement, 

LP/2023/134, https://www.slov-lex.sk/legislativne-procesy/SK/LP/2023/134. 

187  Challenges, as reported by the Government Office, will be to effectively connect the different registers and to 

ensure data protection and the processing of a large amount of data.  

188  Act 85/2005 on political parties and political movements, largely reflecting GRECO recommendations. 
189  Failure to comply can result in a fine by the State Commission on Election and Control of the Financing of 

Political Parties in the amount of double the income from the donation or the gratuitous service.  

190  Government Programme Statement of the Slovak Republic 2023-2027 (2023).  
191  Parties are already required to report on their finances annually to the State Commission for Elections and 
Control of Funding for Political Parties, which are made publicly available. The reports are overseen by the 
National  Council  of  the  Slovak  Republic  and  must  reveal  financial  information  in  relation  to  election 
campaigns  and  donors’  identity,  see  section  22(5)  of  the  Act  85/2005  on  political  parties  and  political 
movements of 2005, as amended in 2019. 

192  The Ministry of Justice of the previous Government had carried out a public consultation on the amendments 
until December 2022, with a planned entry into force by 1 April 2024, see 2023 Rule of Law Report, Country 
Chapter on the rule of law situation in Slovakia, p. 19. See also the resolution of the Parliament´s Constitutional 
Committee  (Amendment  No.  29).  The  amendments  to Act.  No.  300/2005  Coll.  Criminal  Code  aimed  to 
criminalise active and passive bribery in the electoral context, including more regular and serious cases beyond 
the scenario of one bribe for one vote, by introducing Section 336(1)(e) to the Criminal Code, and more severe 
penalties recognising the social impact. The National State Commission for Elections considered the proposed 
amendments to respond to challenges arising in electoral practice, suggesting and extension to municipal and 
regional elections. 

25 

 
 
2023  pre-election  campaigns 193  with  untransparent  campaign  funding  channelled  through 
party-affiliated companies194.  

Several reforms to address corruption in the agricultural sector remain pending. There 
were no considerable efforts to speed up the reforms initiated195 to prevent corruption schemes 
such  as  those  that  occurred  between  2016-2020  in  the  agricultural  sector 196 .  Indeed,  the 
legislative amendments to prevent corruption regarding such schemes are still pending197. The 
statistical  data  of  the  Slovak  Land  Fund  shows  progress  on  the  number  of  lease  contract 
application files treated per year however, additional efforts need to be done to decrease the 
backlog198.  In  2023,  the  Slovak  Land  Fund  and  the  Agricultural  Paying  Agency  signed  a 
Memorandum  on  Cooperation  to  improve  the  effectiveness  and  efficiency  of  the  control 
mechanisms199. Lease contracts signed by the Slovak Land Fund are now published however, 
it appears that no steps were taken since 2022 to geo-localise the parcels leased and link lease 
contracts  with  the  cadastre,  which  makes  searches  and  monitoring  of  free  and  leased  land 
difficult. The Land Fund did not notify the European Commission about any progress on the 
requested clarification of internal procedural rules to ensure more legal certainty for applicants 
and  those  who  lease  land.  The  large-scale  fraud  case  concerning  EU  funds  involving  the 

193  Transparency International (29 June 2023), Smer is not pretending anything: it has sent a million euros from 
a  transparent  account  to  its  own  agency.  Stakeholders  had  already  raised  concerns  about  the  possible 
circumvention of transparency obligations during election campaigns, when candidates and political parties 
hire  public  relations  agencies  in  support  of  their  campaign  activities,  as  their  campaign  services  are  not 
published in detail but only under one single budget item, see for example 2023 EU Rule of Law report, p. 19. 
For more details, see Transparency International, ´Every third euro in the election campaign went through the 
agency´ (3 April 2020).  

194  The National State Commission for Elections and Control of Funding of Political Parties considered that the 
legislation in force on the financing of the electoral campaign, including section 15 of the Electoral Campaign 
Act, is in principle satisfactory, as previously reported, see 2023 Rule of Law Report, Country chapter on the 
rule of law situation in Slovakia, p. 19.  

195  Amendments have been proposed to Act No. 330/1991 Coll. on Land Modifications, Arrangement of Land 
Ownership,  Land  Offices,  Land  Fund  and  Land  Communities,  to Act  No  504/2003  Coll.  on  the  lease  of 
agricultural  land,  agricultural  enterprise  and  forest  land  and  on  the  amendment  of  certain  acts,  and  to 
Government  Regulation  No  238/2010  laying  down  details  on  the  conditions  of  lease,  sale,  exchange,  and 
acquisition of real estate by the Slovak Land Fund, as amended.  

196  The National Crime Agency detained several high-ranking officials of the Land Fund allegedly involved in 
corruption schemes between 2016 and 2020, see 2023 and 2022 Rule of Law Report, Country Chapter on the 
rule of law situation in Slovakia, p. 17. 

197  Proposals were made by the Ministry of Agriculture and Rural Development of the Slovak Land Fund. The 
Slovak Land Fund is in charge of the management of agricultural land under State ownership or land without 
a known private owner. These parcels cover approximately 20% of all agricultural land in Slovakia and are in 
majority eligible for EU direct payments grants. See written contribution from the Land Fund in the context 
of the country visit to Slovakia, p. 1, currently preparing a joint position together with the Agricultural and 
Food  Chamber  (SPPK)  to  foster  the  proposals  for  amendments Act  No.  330/1991, Act  No.  504/2003,  and 
Government Regulation No. 238/2010. 

198  The number of files handled concerning requests for lease contracts was 5.134 in 2023(compared to 4.508 in 
2022),  the  backlog  decreased  from  5.676  in  January  2022 to  2.954  in  December  2023, written  input  from 
Slovak Land Fund. Previous OLAF concerns concerned the lack of a complete central digital depository of 
EU payment-related documentation in the agricultural sector, guaranteeing the accessibility and storage  of 
information for transparency and control, including, among others, the publication of lease contracts signed 
by the Slovak Land Fund that allow interested parties to monitor free and leased land and thus contributing to 
corruption prevention. 

199  To help prevent corruption schemes in Slovakia’s agricultural land management system, the European Anti-
Fraud  Office  has  issued  several  financial  and  administrative  recommendations,  including  on  more 
transparency  and  better  coordination  between  the  Land  Fund  and  the  Agricultural  Paying  Agency.  See 
European Anti-Fraud Office, OLAF closes cases on EU agricultural funds in Slovakia (21 January 2021), and 
also 2022 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, pp. 17-18. 

26 

 
 
Agricultural Paying Agency previously reported upon is still pending in court200, with further 
arrests having taken place201. Overall, agriculture continues to rank among Slovakia’s high-
risk corruption areas202.  

Proposed  public  procurement  reforms  risk  undermining  effective  prevention  and 
oversight  in  the  high-risk  area  of  public  procurement.  The  Flash  Eurobarometer  on 
Businesses’ attitudes towards corruption in the EU shows that 45% of companies in Slovakia 
(EU average 27%) think that corruption has prevented them from winning a public tender or a 
public procurement contract in practice in the last three years203. Proposed amendments to the 
Public Procurement Act204, submitted for consultation in February 2024, aim to simplify public 
procurement rules205, risking however to revert the newly introduced professionalisation for 
contracts below the EU threshold that has been in force since 1 April 2024206. Furthermore, 
contracts with a value of up to EUR 50 000 would be excluded from the scope of the Public 
Procurement Act, reducing the possibilities for effective control and oversight by the Public 
Procurement Office207. The lack of prior publication requirements for the tender notice raises 
concerns about transparency208, and as such about effective safeguards against corruption and 

200  Information received from the Ministry of Interior/ Police National Crime Agency/ Police President in the 
context of the country visit to Slovakia, with the police indicating that more financial experts will be hired to 
better investigate such agricultural schemes in the future. See Euractiv, Audit reveals large-scale fraud of EU 
funds in Slovak agricultural paying agency (19 March 2021). 

201  Euractiv (23 June 2023), Slovak officials hired to fight farm subsidy fraud arrested for fraud; The Guardian 

(29 June 2023), Slovakian anti-corruption official arrested in corruption inquiry. 

202  Together with Government procurement and investments, infrastructure and construction (in particular green 
renovation  of  buildings),  agriculture,  environment  (especially  projects  related  to  tackling  climate  change), 
healthcare, state IT contracts and corruption at the level of local and municipal government, see Input from 
Slovakia for the 2024 Rule of Law Report, p. 34. 

203  Flash Eurobarometer 543 on Businesses’ attitudes towards corruption in the EU (2024). This is 18 percentage 

points above the EU average.  

204  Prepared  by  the  Ministry  of  Investments,  Regional  Developments  and  Informatisation.  LP/2024/51  Act 
amending  and  supplementing  Act  No.  343/2015  Coll.  on  Public  Procurement  and  on  Amendments  and 
Supplements to Certain Acts, as amended, and amending certain acts,  https://www.slov-lex.sk/legislativne-
procesy/-/SK/dokumenty/LP-2024-51. 

205  Explanatory memorandum to the Act amending and supplementing Act No. 343/2015 on Public Procurement 

and on Amendments and Supplements to Certain Acts, as amended, and amending certain acts. 

206  Act No. 395/2021 amending Act No. 343/2015 on public procurement.  See also The Slovak Spectator (15 
November 2023), Changes to the Public Procurement Law – Take Six. Overall, the draft amendments introduce 
significant modifications, particularly to low value tenders, which present approximately half of all tenders 
publicly announced, which would no longer require the participation of the newly introduced expert guarantor 
for all contracts below the EU thresholds, see section 184b of LP/2024/51 Act amending and supplementing 
Act  No.  343/2015  Coll.  on  Public  Procurement  and  on Amendments  and  Supplements  to  Certain Acts,  as 
amended,  and  amending  certain  acts.  Slovakia’s  RRP  provides  under  reform  3  that  in  simplifying  and 
shortening  public  procurement  procedures,  control  procedures  need  to  be  improved,  and  transparency 
increased in particular by setting up a single, public electronic platform for the entire procurement process, 
including for below-threshold and low-value contracts. All changes, particularly as proper safeguards such as 
transparency requirements, review procedures and the  separation of tasks and competences are concerned, 
shall fully comply with EU law. 

207  The  amendments  will  raise  the  limit  for  small-scale  contracts  from  EUR  10 000  to  50 000,  abolishing  the 

category of low value contracts below 10 000 as the simplest method of public procurement.  

208  Contracting authorities would only be obliged to publish ex-post the awarded contract. For more details, see 
Zastavme  korupciu  (23  February  2024),  Let’s  Stop  Corruption  collects  signatures  on  public  procurement 
amendment. 

27 

 
 
favouritism209.  Moreover,  a  separate  bill  on  emergency  measures  for  strategic  investments 
amending  the  Public  Procurement  Act210,  submitted  to  Parliament  in  February  2024,  raises 
questions related to risks to the independence of the Public Procurement Office211 due to the 
newly  created  possibilities  to  exert  direct  political  influence  over  large-scale  investment 
procurements through the creation of a new post of Vice-Director in charge of such specific 
procurements212. The exemption from standard public procurement procedures without robust 
safeguards for the Vice-Director’s decision-making procedure pose corruption risks for large-
scale  investment  tenders  with  a  value  above  EUR  100  million.  Notably,  Government 
procurement  in  the  infrastructure  and  construction  sectors  feature  amongst  the  highest 
corruption  prone  areas  in  Slovakia 213 .  Overall,  stakeholders  do  not  perceive  the  planned 
amendments  of  the  Public  Procurement  Act  and  the  new  bill  on  strategic  investments  as 
addressing the actual challenges at stake in practice, including systemic misuse of tenders and 
the level of professional expertise affecting the quality of public tenders214. 

209  For  tenders  below  the  new  national  threshold  of  EUR  50 000,  direct  awards  are  possible  without  prior 
publication, while for those above the national threshold up to EU thresholds, at least three bids are required, 
yet again without prior publication of the  tender notice, negatively impacting also the monitoring by third 
parties, relevant for the detection of irregularities, fraud, and corruption. Appeals against tender conditions set 
by the contracting authority cease to be possible, including for construction contracts below the threshold, 
where no objections can be filed for contracts of a value between EUR 800 000 to EUR 1 500 000 and, for 
goods and service, of a value between EUR 140 000 to EUR 221 000. Penalties for violations of the law will 
be lowered from 5% to a range of 0.1% to 5%, see section 182 of the Act amending and supplementing Act 
No. 343/2015 on Public Procurement and on Amendments and Supplements to Certain Acts, as amended. 
210  As prepared by the Ministry of Transport, the Law on Emergency Measures for strategic investments and for 
the  construction  of  the  trans-European  Transport  Network  and  amending  certain  acts,  https://www.slov-
lex.sk/legislativne-procesy/-/SK/dokumenty/LP-2024-10. Accordingly, except for road and rail infrastructure 
construction projects, any project of more than EUR 100 million can be labelled as a strategic investment. 
211  See Comments on the draft law on extraordinary measures for strategic investments and for the construction 

of the trans-European transport network by the 25 civil society organisations (2024). 

212  The Public Procurement Office has a status as an independent state entity by law. State bodies, territorial self-
administration bodies, other public authorities or other persons may not influence the Office in the exercise of 
its powers. The act would empower Vice-Director to be its statutory representative. He would be nominated 
by the Head of the Government Office and appointed by the Government, thus creating a position able to exert 
political influence over public procurement tenders. The Public Procurement Office was not consulted in the 
drafting of the act, which will amend the Public Procurement Act, see Aktuality.sk (17 January 2024), The 
problem with Raz’s bill is political influence, says the head of the Public Procurement Office. 

213  Input  from  Slovakia  for  the  2024  Rule  of  Law  Report,  p.  34,  referencing  also  agriculture,  environment 
(especially projects related to tackling climate change), healthcare, Government procurement and investment, 
state IT contracts and corruption at the level of local and municipal government as corruption high-risk areas. 
Information received from the Ministry of Interior/ NAKA/ Police President/ Office of the Prosecutor General/ 
Special Prosecutor Office/ Transparency International/ Zastavme korupciu in the context of the country visit 
to Slovakia. 

the 

trans-European 

transport  network  by 

214  See Comments on the draft law on extraordinary measures for strategic investments and for the construction 
of 
(2024), 
https://api.mojapeticia.sk/media/campaign/attachment/34f318f9-54b2-48a8-bcfb-39fcc15be579.pdf.  Rather 
than the length of the proceedings that the Government refers to in the  simplification efforts, stakeholders 
point to challenges in the application of law remain in practice, including the systemic misuse of public tenders 
and the lack of professional expertise in public tendering resulting in the poor preparation and management of 
tenders, including in particular in smaller towns and villages.  

society  organisations 

the  25 

civil 

28 

 
 
 
 
III.  MEDIA PLURALISM AND MEDIA FREEDOM 

The Slovak Constitution enshrines the right to express opinions, the right to search for, receive 
and  disseminate  ideas  and  information  as  well  as  the  right  of  access  to  information215.  The 
Media Services Act is aimed at ensuring plurality of information216 while the Publications Act 
establishes rules relating to the press, news media portals, press agencies, the media register 
and to journalists217. The right to access information finds legal expression in the Freedom of 
Information Act218. The Act on Slovak Television and Radio and amending certain acts has 
repealed  the  previous  Act  on  Radio  and  Television  Slovakia  and  provides  the  framework 
regulating the public service broadcaster219. The distribution and allocation of state advertising 
remains unregulated220. 

A  legal  framework  and  autonomous  budget  permit  the  Council  for  Media  Services  to 
operate autonomously. The Council disposes of its own budget and the allocated resources 
continue to be considered adequate for the accomplishment of its tasks while clear rules on the 
appointment and dismissal of the Council’s members are established by law. The Council is 
composed of members who are elected and may be dismissed by the National Council of the 
Slovak Republic after a public hearing of the candidates. The Media Pluralism Monitor 2024 
confirms that the independence of the Council is overall guaranteed and therefore presents low 
risk  though  purely  political  nominations  are  possible  given  that  the  selection  of  candidates 
remains solely in the hands of the Parliament221.  

The  Media  Services  Act  and  Publications  Act  jointly  ensure  transparency  of  media 
ownership. Under this legislation all media outlets, whether broadcast, print, online or other, 
are obliged to make information about their ultimate beneficial owners available via a public 
register. For this reason, the Media Pluralism Monitor continues to consider this to be a low-
risk area222. Under the provisions of the Media Services Act, the Council for Media Services 
performs a market analysis of the media landscape with a view to assessing risk of disruption 
to media plurality. It withholds its consent to a market operation if it concludes that a particular 
operation would lead to a ‘decisive interference’ with media plurality in the country223.  

There has been no progress to enhance the autonomy of public service media. The 2023 
Rule  of  Law  Report  had  concluded  that  by  rendering  the  election  process  of  the  public 
broadcaster’s director-general public, the relevant Slovak legislation 224 had gone some way to 
implementing the recommendation  to  “strengthen the rules and mechanisms to  enhance the 
independent  governance  and  editorial  independence  of  public  service  media”225.  However, 
stakeholders’ concerns increased in relation to the fragile financial situation faced by the public 

215  Article 26 of the Slovak Constitution. Slovakia ranks 29th in the 2024 Reporters without Borders World Press 

Freedom Index compared to 17th the previous year. 

216  Act No. 264/2022 Coll. on media services and amending certain acts (Media Services Act) of 22 June 2022 

transposes Directive 2018/1808 on audiovisual media services. 

217  Act No. 265/2022 Coll. on publishers of publications and on the media and audiovisual register of 22 June 

2022. 

218  Act No. 211/2000 Coll. on free access to information. 
219  Act No. 157/2024 Coll. on Slovak Television and Radio and amending certain acts.  
220  2020 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 10.  
221  Media Pluralism Monitor 2024 report on Slovakia, p. 13. 
222  Ibid. p. 15. 
223  Article 101 of the Media Services Act. 
224  Amendments to Act no. 532/2010 Coll. on Radio and Television Slovakia.  
225  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 22-23.  

29 

 
 
service  broadcaster 226 .  Concerns  had  already  been  raised  following  the  abolition  of  the 
household license fee which was replaced by funds allocated directly from the state budget227 
and  previously  set  at  0.17%  of  GDP  (EUR  186  million).  On  4  December  2023,  the  new 
administration  lowered  public  broadcaster  funding  to  “at  least”  0.12%  of  GDP  (EUR  131 
million).  Media  associations  claim  that  this  decrease  of  the  broadcaster’s  annual  funding 
creates pressure on it to secure alternative subsidies to make up for the shortfall, thereby further 
eroding its independence228. The authorities, on the other hand, emphasise that a compensation 
mechanism built into the law ensures that the public broadcaster would not, in effect, receive 
less funding than it did the previous year229. The 0.12% of GDP mechanism was introduced 
following the Prime Minister’s pledge to impose control over RTVS230. In July 2024, the Act 
on Slovak Television and Radio was adopted which repealed the current Act, dissolved RTVS, 
established  a  new  institution  named  Slovak  Television  and  Radio  (STVR)  and  which  has 
entailed,  among  others,  the  automatic  dismissal  of  RTVS’  board.  Stakeholders  have  raised 
various concerns about the implications of this development for the independence of the public 
service  broadcaster 231.  For  these  reasons,  the  Media  Pluralism  Monitor  confirms  that  this 
remains  an  area  presenting  high  risk 232 .  Therefore,  no  progress  has  been  made  on  the 
recommendation made in the previous years233.   

Despite  some  progress  with  regard  to  mechanisms  aimed  at  improving  the  safety  of 
journalists,  there  are  increasing  concerns  in  relation  to  reported  worsening  of  their 
working  environment.  The  2023  Rule  of  Law  Report  had  found  that  parliamentary 
developments with relevant bills meant that Slovakia had made some progress in advancing 
“with the process to establish legislative and other safeguards to improve the physical safety 
and working environment of journalists, including the reform of defamation law”234. However, 
neither the current Government’s Programme Statement nor the tabled draft amendments to 
the Criminal Code and other acts235 refer to the previously tabled bill aimed at strengthening 
the protection of journalists via amendments to the Criminal Code236. Furthermore, a motion 
proposing an amendment of the Constitution to strengthen provisions relating to media freedom 
was defeated in Parliament. On the other hand, as of September 2023, the Slovak police set up 
a protocol  establishing  regional contact  points within  the police force to  provide support to 
journalists in cases of attacks or threats. Furthermore, in October 2023, the Platform for the 
Support of Press Freedom and the Protection of Journalists was established, bringing together 
representatives from ministries, the police, other public institutions, journalists, media owner 

226  Information received from the Jan Kuciak Investigative Center, the Slovak Print and Digital Media Association 

and the Slovak National Centre for Human Rights in the context of the country visit to Slovakia. 

227  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 23. 
228  Reporters without Borders (13 December 2023), Slovakia: RSF and its partners urge parliament and president 
to  halt  attempts  to  undermine  the  public  broadcaster’s  independence;  International  Press  Institute  (13 
December 2023), Slovakia: Media freedom groups urge MPs to oppose cuts to RTVS budget. 

229  Input from the Slovak Government for the 2023 Rule of Law Report. 
230  Alert 278/2023, Council of Europe, Platform to promote the protection of journalism and safety of journalists. 
231  European  Federation of Journalists (10 June 2024), Slovakia: Media freedom groups call on Parliament to 

reject public broadcasting bill. 

232  Media Pluralism Monitor 2024 report on Slovakia, p. 20-21. 
233  According  to  the  European  Parliament’s  Flash  Eurobarometer:  News  &  Media  Survey  2023,  46%  of 
respondents in Slovakia stated that they trust public TV and radio stations, below the EU average of 48%. 

234  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 23-24.  
235  See above p.3.  
236  The  previously  tabled  bills  concerned  the  introduction  of  aggravating  circumstances  in  relation  to  crimes 

committed against journalists and amendments to the defamation regime.  

30 

 
 
associations and self-regulatory bodies237. A separate newly established, independent, platform 
dedicated to the safety of journalists in Slovakia published its first report in December 2023 
documenting  various  forms  of attacks  and intimidation  of journalists in  2023238. Since July 
2023, the Council of Europe’s Platform to promote the protection of journalism and safety of 
journalists published five new alerts which relate, respectively, to the denigration of journalists, 
verbal attacks on the Ján Kuciak Investigative Centre, hate speech against a journalist and the 
budgetary  and  legislative  developments  relating  to  RTVS 239 .  The  2023  Mapping  Media 
Freedom  monitoring  report  flags  denigration  of  and  threats  of  violence  against  journalists 
among  the  most  common  press  freedom  violations  in  the  country 240 .  In  light  of  these 
developments,  MPM  2024  has  increased  its  risk  score  from  low  risk  to  medium  risk, 
highlighting  the  threats  and  intimidation  faced  by  journalists,  their  precarious  employment 
conditions and the lack of anti-SLAPP protections241. Therefore, while there is some progress 
on the recommendation made in the previous years with putting new mechanisms in place to 
improve  the  safety  of  journalists,  there  are  increasing  concerns  in  relation  to  the  reported 
worsening of their working environment. 

IV.  OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES 

Slovakia is a parliamentary republic with a unicameral parliament (the National Council) as 
the  sole  legislative  body 242 .  The  right  to  introduce  legislative  proposals  belongs  to  the 
Committees  of  Parliament,  individual  members  of  Parliament,  and  the  Government243.  The 
Constitutional Court decides on the compliance of laws with the Constitution, constitutional 
acts,  and  international  agreements,  and  ensures  respect  for  fundamental  and  constitutional 
rights. Independent authorities also play a role in safeguarding fundamental rights, notably the 
Office of the Public Defender of Rights, the National Centre for Human Rights (which is the 
national  human  rights  institution),  the  Commissioner  for  Persons  with  Disabilities,  and  the 
Commissioner for Children.  

There has been no progress in ensuring effective public consultation in the law-making 
process, as major reforms proceed without effective stakeholder involvement. The 2023 
Rule  of  Law  Report  recommended  to  Slovakia  to  “ensure  effective  public  consultation  and 
stakeholder involvement in the law-making process”244. Last year’s Rule of law Report noted 
the lack of systematic involvement of stakeholders in the legislative process, as well as frequent 
use  of  the  fast-track  legislative  procedure245.  Despite  the  pledge  made  in  the  Government’s 
Programme Statement to properly discuss draft laws with stakeholders246, they have reported 
a lack of consultations during law-making processes, including at expert level247. The newly 
elected Parliament has approved 12 laws from October to December 2023, 11 of which were 

237  Input from the Slovak Government for the 2024 Rule of Law Report. 
238  Bezpečná.Žurnalistika.SK. 
239  Council of Europe, Platform to promote the protection of journalism and safety of journalists. The government 

replied to three of these alerts.  

240  Media Freedom Rapid Response (2023), Mapping Media Freedom - Monitoring Report 2023, p. 32. 
241  Media Pluralism Monitor 2024 report on Slovakia, pp. 12-13. 
242  Article 72 of the Slovak Constitution. 
243  Article 87 of the Slovak Constitution. 
244  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 2. 
245  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 24.  
246  Programme Statement of the Government of the Slovak Republic, 2023-2027, p. 70, ‘support the recovery of 

the dialogue on social level during creation and approval of laws and other legal acts’. 

247  Contribution from Civil Liberties Union for Europe for the 2024 Rule of Law Report, pp. 21-22 and 26 and 

contribution from ENNHRI, for the 2024 Rule of Law Report, p. 15.  

31 

 
 
adopted in a fast-track legislative procedure248. Among those adopted in such a procedure, were 
the amendments to the Criminal Code and other related acts adopted on 8 February 2024249. 
These  amendments  were  prepared  without  proper  stakeholder  consultation,  and  without 
inclusion of experts or professionals in the field of criminal law, or an impact assessment250. 
The  reasons  put  forward  for  the  use  of  the  fast-track  procedure  were  challenged  before  the 
Constitutional  Court251.  Moreover,  the  quality  of  law-making  and  the  frequent  changes  in 
legislation remain a significant cause for concern as regards the effectiveness of investment 
protection among companies in Slovakia252. There has therefore been no progress made on the 
recommendation in the 2023 Rule of Law Report. 

On 1 January 2024, Slovakia currently had 29 leading judgments of the European Court 
of Human Rights pending implementation, an increase of five compared to the previous 
year253. At that time, Slovakia’s rate of leading judgments from the past 10 years that remained 
pending was at 53% (compared to 51% in 2023) and the average time that the judgments have 
been pending implementation was 3 years and 3 months (compared to 2 years and 11 months 
in  2023)254.  The  oldest  leading  judgment,  pending  implementation  for  more  than  11  years, 
concerns  the  excessive  length  of  civil  proceedings 255.  As  regards  the  respect  of  payment 
deadlines,  on  31  December  2023  there  were  24  cases  in  total  awaiting  confirmation  of 
payments  (compared  to  12  in  2022)256.  On  1  July  2024,  the  number  of  leading  judgments 
pending implementation had increased to 31257. 

248  National Council of the Slovak Republic (2023); all of these bills were proposed by the Government, written 

input from Civil Liberties Union for Europe, p. 21.  

249  Act No. 40/2024 Coll., amending Act No. 300/2005 Coll., Criminal Code and other related acts. Other acts 
adopted in a fast-track procedure are for example the Act No. 7/2024 Coll., amending Act No. 575/2001 Coll., 
on  the  Organization  of  Government  Activities  and  the  Organization  of  Central  State  Administration 
(Competence  Act),  or  the  Government’s  decisions  Nos.  702/2023  and  703/2023  of  6  December  2023, 
proposing amendments to Act No 54/2019 Coll., on the protection of whistleblowers, to be adopted in a fast-
track legislative procedure. The proposal was eventually taken off the Parliament’s agenda.  

250  Contribution from Civil Liberties Union for Europe for the 2024 Rule of Law Report, pp. 9-10, from ENNHRI, 
for the 2024 Rule of Law Report, pp. 446-447, the Association of Judges of Slovakia, pp. 18-19 and the Slovak 
Bar Association, p. 22.  
251  As described in pillar 1. 
252  In Slovakia, 48% of the surveyed companies perceive the quality of law-making and the frequent changes in 
legislation as a reason for the lack of confidence in the investment protection in Romania (compared to 43% 
in 2023). Figure 56, 2024 EU Justice Scoreboard. See also concerns presented publicly by the representatives 
of the business community under the Initiative for the Rule of Law.  

253  The  adoption of necessary execution measures for a judgment by the European Court of Human Rights is 
supervised by the Committee of Ministers of the Council of Europe. It is the Committee’s practice to group 
cases against a State requiring similar execution measures, particularly general measures, and examine them 
jointly. The first case in the group is designated as the leading case as regards the supervision of the general 
measures and repetitive cases within the group can be closed when it is assessed that all possible individual 
measures needed to provide redress to the applicant have been taken. 

254  All figures are calculated by the European Implementation Network and are based on the number of cases that 
are considered pending at the annual cut-off date of 1 January 2024. See the Contribution from the European 
Implementation Network for the 2024 Rule of Law Report, p. 7. 

255  Judgment  of  the  European  Court  of  Human  Rights  of  24  July  2012,  Maxian  and  Maxianova  v.  Slovakia, 

44482/09, pending implementation since 2012. 

256  Council  of  Europe  (2024),  Supervision  of  the  execution  of  judgments  decisions  of  the  European  Court  of 

Human Rights – 17th Annual Report of the Committee of Ministers – 2023, p. 138.  

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

32 

 
 
 
 
The National Preventive Mechanism is now functioning under the Ombudsperson’s office, 
the Commissioner for Children, and the Commissioner for Persons with Disabilities. The 
National Preventive Mechanism (NPM) was established on 1 May 2023 with the amendment 
to the Act on the Public Defender of Rights258. Slovakia ratified the Optional Protocol to the 
Convention against Torture and other Cruel, Inhuman or Degrading Treatment or Punishment, 
which entered into force in Slovakia on 19 October 2023259. As reported in the 2023 Rule of 
Law Report, the new framework extends the competence of the Public Defender of Rights, 
who also holds a coordinating role, the Commissioner for Children, and the Commissioner for 
Persons with Disabilities to carry out systematic unannounced visits to places where persons 
deprived  of  their  liberty  are  held,  ascertain  how  those  persons  are  treated  and  evaluate  any 
potential ill-treatment 260. Although the extended competence is accompanied by an additional 
budget, the Public Defender of Rights communicated its concerns over the proposed financial 
and human resources for this task in the context of insufficient resources for the Office overall, 
warning of a negative impact on the independence and the effectiveness of the NPM261. During 
the  first  year  of  functioning,  emphasis  has  been  placed  on  the  creation  of  dedicated  teams, 
methodology  and  establishment  of  coordination  among  the  three  involved  bodies.  Several 
dedicated  visits  have  been  already  carried  out  by  the  Public  Defender  of  Rights  as  NPM, 
followed by recommendations, some of which have already been implemented262.  

The  Slovak  National  Centre  for  Human  Rights  contributes  with  its  projects  to 
strengthening  the  rule  of  law  culture.  The  Slovak  National  Centre  for  Human  Rights 
(SNCHR),  which  is  mandated  as  National  Human  Rights  Institution  and  equality  body 
accredited with B-status263, has built up initiatives and activities to strengthen and promote the 
rule of law culture in Slovakia. Building on a rule of law tracker as a tool for monitoring the 
rule of law situation, as already highlighted in the 2023 Rule of Law Report264, SNCHR started 
issuing  and  tracking  own  recommendations  in  this  regard 265 .  In  autumn  2023,  SNCHR 
organised a Rule of Law Festival in Bratislava and in the regions of Banská Bystrica and Košice, 
with representatives of state authorities, civil society, journalists and private sector, focusing 
on topics of space for civil society, protection of journalists and human rights structures and 
public policymaking266.  

Initiatives to enhance participation in developing public policies continue.  The national 
project  for  participatory  policy  making  referred  to  in  the  2023  Rule  of  Law  Report267,  was 
completed on 31 December 2023. Its results included the creation of sectoral councils at the 
Council of the Government for Non-Governmental Organisations and several ministries with 
the  aim  to  build  a  long-term,  structured  dialogue  between  the  representatives  of  central 
government  bodies  and  civil  society  organisation  experts.  Further  outcomes  included  the 

258  Act 110/2023 Coll. amending Act No 564/2001 on the Public Defender of Rights, as amended, and amending 

certain other acts. 
259  Act 448/2023 Coll. 
260  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 27. 
261  Contribution  from  the  Public  Defender  of  Human  Rights  for  the  2024  Rule  of  Law  Report,  p.  22  and 
contribution from ENNHRI for the 2024 Rule of Law Report, pp. 17-18. See also 2023 Rule of Law Report, 
Country Chapter on the rule of law situation in Slovakia, p. 27. 

262  Information received in the context of the country visit from the Public Defender of Rights.  
263  Accreditation is provided by the UN Global Alliance of National Human Rights Institutions (GANHRI).  
264  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 27.  
265 Rule of Law Tracker and Slovak National Centre for Human Rights (2023); Contribution of ENNHRI for the 

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

266  Contribution of ENNHRI for the 2024 Rule of Law Report, pp. 3-4. 
267  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovakia, p. 25.  

33 

 
 
creation  of  an  index  for  monitoring  and  evaluating  the  state  of  open  governance  and 
participation, and a dedicated training programme for public administration staff268. The Office 
of the Plenipotentiary of the Government of the Slovak Republic for the Development of Civil 
Society,  in  cooperation  with  civil  society  organizations,  developed  the  Action  Plan  of  the 
Initiative for Open Governance for the years 2024-2026, which concerns, inter alia, increasing 
the participation of civil society in public policy-making269. In its Programme Statement for 
2023-2027,  the  Government  declared  support  to  the  participation  of  the  professional 
community, the academic community, social partners, and the general public in the creation of 
public policies and law-making270, whilst also considering certain civil society organisations 
as attempting to influence the democratic political competition in a non-transparent way271.  

Amendments to the Competence Act widen the power of the Government to appoint and 
dismiss heads of certain independent bodies. On 16 January 2024, the Parliament approved, 
in a fast-track legislative procedure, amendments to the so-called Competence Act272, which, 
among others, introduces changes to the process of selection of the heads of two independent 
institutions - the Statistical Office of the Slovak Republic and the Office for Supervision of 
Healthcare.  The  appointment  and  dismissal  are  now  fully  in  the  hands  of  the  Government, 
compared  to  the  previous  regime,  embedded  in  the  Constitution,  that  the  heads  of  these 
institutions  are  appointed  and  dismissed  by  the  President  of  the  Slovak  Republic  on  the 
proposal of the Government273. The amendment has also widened the conditions under which 
the heads of these institutions can be dismissed before the end of their term. On 6 February 
2024, the Government dismissed, before the end of their term, both the Head of the Statistical 
Office and Head of the Office for Supervision of Healthcare and replaced them with its own 
nominees. The amendment has been challenged before the Constitutional Court by the former 
President of the Republic274 and accepted by the Court for further proceeding, as well as by a 
group  of  Members  of  Parliament275.  Stakeholders  raise  a  concern  that  the  change  interferes 
with  the  principle  of  checks  and  balances  by  giving  full  control  of  these  independent 
institutions  exclusively  to  the  government  and  poses  a  threat  to  the  independence  and 
impartiality  of  these  institutions276.  In  a  similar  manner,  the  Government  circumvented  the 

268  Information received in the context of the country visit from the Office of the Government Plenipotentiary for 

the Development of the Civil Society.; Input from Slovakia for the 2024 Rule of Law Report, p. 56.  

269  LP/2023/492 Draft Action Plan of the Initiative for Open Governance for the years 2024-2026. The material 
was subject to public comments and approved by Slovak Government  with its resolution No. 490/2023 in 
September 2023.  

270  Programme Statement of the Government of the Slovak Republic, 2023-2027, p. 12, 68 and 70.  
271  Programme  Statement  of  the  Government  of  the  Slovak  Republic,  2023-2027,  p.  5,  which  reads  ‘The 
Government  also  recognises  the  role  of  non-governmental  organisations.  However,  it  cannot  accept  that 
politically oriented entities, often financed from abroad, influence democratic political competition in a non-
transparent manner. The Government is ready to support financially NGOs carrying out activities of public 
benefit, for example in the social field, humanitarian, environmental, educational, training, sports, etc.’ 
272  Act No. 7/2024 Coll., amending Act No. 575/2001 Coll., on the Organization of Government Activities and 

the Organization of Central State Administration, as amended.  

273  Art. 102 of the Constitution of the Slovak Republic.  
274  One of the reasons for the constitutional complaint is that the Government interfered by this amendment with 
her competences in cases of appointing independent bodies, as stipulated in Article 102 para 1 letter h) of the 
Slovak Constitution. 

275  PL. ÚS 1/2024-30. Submission by the President of the Republic as registered on 30 January 2024 as 290/2024, 
PL. ÚS 1/2024. Submission by a group of Members of Parliament of 29 February 2024, 605/2024, PL. ÚS 
4/2024.  

276  Contribution from Civil Liberties Union for Europe for the 2024 Rule of Law Report, p. 2, 22-23; Contribution 
from ENNHRI  for the 2024 Rule of Law  Report,  p. 18. Business associations also point out that frequent 

34 

 
 
 
President’s  powers  to  appoint  the  director  of  the  Slovak  Information  Service  (‘SIS’)277,  by 
adjusting  the  SIS  statute  allowing  for  the  Government  nominee  for  the  position  of  deputy 
director to have the competences of the director278.  

The environment for civil society organisations deteriorated, particularly for those with 
the role of overseeing state activities, and in the area of human rights.  The civil society 
space  in  Slovakia  is  considered  as  ‘narrowed’ 279 .  Stakeholders  reported  that  after  the 
parliamentary elections in September 2023, the situation had worsened, describing a climate of 
insecurity intimidation, with a part of Civil Society Organisations (CSOs) labelled as enemies 
or foreign agents by politicians and representatives of the government, targeting organisations 
performing  watchdog  functions  or  active  in  the  fields  of  human  rights,  including  LGBTIQ 
rights,  and  gender  equality280.  In  its  Programme  Statement  for  2023-2027,  the  Government 
committed  to  introduce  transparent  rules  for  CSOs  financing,  creating  a  state  agency  for 
assistance to the non-profit sector, providing short-term and long-term grants to “the part of 
the civil society sector that is genuinely interested in improving life in the country [emphasis 
added]” and to  facilitate the establishment of simple forms of civil society associations and 
simplifying the registration of other forms of non-governmental organisations281. In October 
2023,  the  Government  announced  its  intention  to  enact  legislation  to  label  CSOs  receiving 
financing from abroad as “foreign agents”282. On 27 March 2024, Members of Parliament from 
Slovakia’s  ruling  coalition  party  proposed  amendments  that  would  introduce  a  mandatory 
labelling of organisations receiving more than EUR 5,000 a year from a foreign natural or legal 
person as ‘organisations with foreign support’. Funding from the European Union is excluded 
from  the  concept  of  foreign  support 283 .  Moreover,  in  November  2023,  the  Government 
announced a change in the criteria for the allocation of taxes on personal income, with the risk 
to  considerably  reduce  funding  for  non-profit  organisations  across-the-board.  After  strong 
opposition by CSOs, the process was suspended and no formal steps were taken so far. Instead, 
targeted measures have been adopted to discontinue public financing to certain types of CSOs, 
notably LGBTIQ organisations, and activities such as projects to fight against disinformation, 
or for the protection of human rights284. On 27 June 2024, Parliament approved amendments 
on  the  Act  to  freedom  of  assembly  and  other  acts285,  in  a  fast-track  legislative  procedure, 

changes in key professional positions in the public administration and public bodies, which are often subject 
to political nominations, have a negative impact on the quality of the activities of these bodies and undermines 
the stability of the business environment. Initiative For the Rule of Law (2023), p. 4. 

277  SIS collects and provides the legally defined recipients with the information on the most critical threats to the 
constitutional  system,  internal  order  and  security,  as  well  as  the  information  focused  on  the  protection  of 
foreign  political  and  economic  interests  of  the  state. Decision  of  the  Government  No.  95/2024. 
https://rokovania.gov.sk/RVL/Resolution/21462.  

278  Decision to amend the statute: No. 116/2024 of 22 February 2024.  
279  Rating given by Civicus, https://monitor.civicus.org/explore/slovakia-overview/. Ratings are on five-category 

scale defined as: open, narrowed, obstructed, repressed and closed. 

280  Contribution  from  Civil  Liberties  Union  for  Europe  for  the  2024  Rule  of  Law  Report,  p.  2,  25-27,  and 
Contribution  from  ENNHRI  for  the  2024  Rule  of  Law  Report,  p.  18-22. Also  Slovak  National  Centre  for 
Human Rights (2023b) and Slovak National Centre for Human Rights (2023c). Information received in the 
context of the country visit from Zastavme korupciu and Transparency International. 

281  Programme Statement of the Government of the Slovak Republic, 2023-2027, p. 70 and 74.  
282  Contribution from ENNHRI for the 2024 Rule of Law Report, p. 19.  
283  Draft Section 6a of Parliamentary Bill No. 245, amending Act No. 213/1997 Coll., on non-profit organisations 
providing services of general interest and other related acts. The draft Section 6a does not mention Member 
States of the EU as an exception. 

284  Contribution from Civil Liberties Union for Europe for the 2024 Rule of Law report, pp. 24-25, ENHHRI, p. 

19. Also petition of about 80 non-governmental organisations, Slovak Press Agency (2024).  

285  Draft amendments to Act No 84/1990 Coll., on the freedom of assembly and to other acts. 

35 

 
 
widening  the  grounds  for  limiting  announced  gatherings  and  increasing  the  powers  of  the 
Slovak  Information  Service  for  gathering  and  assessing  information  regarding  threats  to 
politicians286. According to the Government, these amendments aim to protect the right to a 
private life and decrease tension within Slovak society287, however they were criticised by the 
Prosecutor  General,  the  Public  Defender  of  Rights,  the  Judicial  Council 288 ,  and  the 
opposition289 on grounds of proportionality.  

286  Bill No. 363, Government’s proposal to adopt a fast-track legislative procedure for this amendment. Bill No. 
364, Government Bill on Certain measures to improve the security situation in the Slovak Republic,  RTVS 
(2024)  Parliament  approved  Lex  Assassination.  Another  package  of  changes  should  come  in  autumn, 
confirmed 
344/2024: 
Government’s 
https://rokovania.gov.sk/RVL/Material/29673/1. Government’s Decision No 353/2024 approving a fast-track 
procedure, https://rokovania.gov.sk/RVL/Resolution/21723/1. The law entered into force as of 15 July 2024. 
CAS.sk  (2024)  Lex Assassination  has  come  into  force:  What  awaits  top  constitutional  officials  and  new 
grounds for banning assemblies. 

Decision 

Gašpar. 

Tibor 

No 

287  Aktuality.sk  (2024),  Increased  competencies  for  SIS  and  security  for  the  opposition.  What  does  the 
Government  plan  to  change,  following  Fico’s  assassination  attempt?;  Idnes.cz  (2024),  Lex  assassination. 
Fico’s Government wants greater protection, as well as annuity for life for politicians. 

288  Ta3 (2024), Lex atentat did unite, however, the critics. Do we really need such changes to the legislation?; 
Press release of the Public Defender of Rights of 18 June 2024: Vláde a Parlamentu odporúčam prijať vyššie 
záruky  na  ochranu  ústavného  práva  na  zhromažďovanie  občanov.  Z neplatenia  pokút  spraviť  trestný  čin 
neodporúčam. (‘I recommend to the Government and Parliament to adopt higher safeguards to protect the 
constitutional freedom of assembly of the citizens. I do not recommend to make not paying a fine a crime.‘). 
Slovak Judicial Council (2024), Decision No 191/2024 of 17 June 2024. Aktuality.sk (2024) Maroš Žilinka aj 
koaliční poslanci kritizujú lex atentát: pokuty aj sledovanie občanov chcú vyškrtnúť (‘Maroš Žilinka and the 
opposition Members of Parliament criticise Lex atentat: they want to strike out the fines as well as monitoring 
of the citizens‘).  

289  Noviny.sk (2024), Lex atentat: New measures face criticism and won’t avoid to be amended. 

36 

 
 
 
Annex I: List of sources in alphabetical order* 

* The list of contributions received in the context of the consultation for the 2024 Rule of Law report 
can 
https://commission.europa.eu/publications/2024-rule-law-report-targeted-
stakeholder-consultation_en. 

found 

be 

at 

25 civil society organisations (2024) Comments on the draft law on extraordinary measures for strategic 
investments 
network, 
of 
https://api.mojapeticia.sk/media/campaign/attachment/34f318f9-54b2-48a8-bcfb-39fcc15be579.pdf.  

trans-European 

construction 

transport 

and 

the 

the 

for 

Aktuality.sk (12 June 2024), Increased competencies for SIS and security for the opposition. What does 
the Government plan to change, following Fico’s assassination attempt (Väčšie kompetencie pre SIS aj 
ochranka  pre  opozíciu.  Čo  vláda  plánuje  meniť  po  atentáte  na  Roberta  Fica?), 
https://www.aktuality.sk/clanok/4BIcL6h/vacsie-kompetencie-pre-sis-aj-ochranka-pre-opoziciu-co-
vlada-planuje-menit-po-atentate-na-roberta-fica/.  

Aktuality.sk  (15  May  2024),  President  of  the  Specialised  Criminal  Court  resigns  (Končí  šéf 
Špecializovaného trestného súdu Ján Hrubala), https://www.aktuality.sk/clanok/8fKXvQ0/konci-sef-
specializovaneho-trestneho-sudu-jan-hrubala/. 

Aktuality.sk (17 January 2024), The problem with Raz’s bill is political influence, says the head of the 
Public Procurement Office (Problém Rážovho návrhu zákona je politický vplyv, tvrdí šéf Úradu pre 
verejné obstarávanie), https://www.aktuality.sk/clanok/Et9XqBA/problem-razovho-navrhu-zakona-je-
politicky-vplyv-tvrdi-sef-uradu-pre-verejne-obstaravanie/.  

Aktuality.sk (18 June 2024), Maroš Žilinka and the opposition Members of Parliament criticise Lex 
atentat: they want to strike out the fines as well as monitoring of the citizens (Maroš Žilinka aj koaliční 
vyškrtnúť), 
poslanci 
https://www.aktuality.sk/clanok/7jvDMnp/maros-zilinka-aj-koalicni-poslanci-kritizuju-lex-atentat-
pokuty-aj-sledovanie-obcanov-chcu-vyskrtnut/.  

sledovanie 

občanov 

kritizujú 

atentát: 

pokuty 

chcú 

lex 

aj 

Aktuality.sk (3 November 2023), Two dismissed members of the Judicial Council: The Government 
decided arbitrarily, we will file a constitutional complaint (Dvaja odvolaní členovia súdnej rady: Vláda 
rozhodla  svojvoľne,  podáme  ústavnú  sťažnosť),  https://www.aktuality.sk/clanok/j4qOomp/dvaja-
odvolani-clenovia-sudnej-rady-vlada-rozhodla-svojvolne-podame-ustavnu-staznost/.  

AP News (26 January 2024), Thousands protest in Slovakia against plan to amend penal code and close 
special  prosecutor’s  office,  https://apnews.com/article/slovakia-penal-code-protests-robert-fico-
7fbd3c9cfb4f97298f00a0fca01c3e15. 

ARTICLE19  -  Global  Campaign  for  Free  Expression  (9  January  2024),  Slovakia:  Reject  proposed 
changes  to  whistleblower  legislation,  https://www.article19.org/resources/slovakia-reject-proposed-
changes-to-whistleblower-legislation/.   

Association of Judges of Slovakia (2024), Association is currently gathering knowledge and experience 
of its members, which it will evaluate in a complex manner (Združenie v súčasnosti zbiera poznatky a 
skúsenosti  svojich  členov,  které  komplexne  vyhodnotí),  https://www.teraz.sk/slovensko/zdruzenie-
sudcov-chce-eliminovat-negat/770362-clanok.html. 

Association of Judges of Slovakia (2024), Contribution from the Association of Judges for the 2024 
Rule of Law Report. 

BIRN (13 December 2023), Exiled in Bosnia: Corrupt and accused Slovak police offices find comfort 
abroad, 
https://balkaninsight.com/2023/12/13/exiled-in-bosnia-corrupt-and-accused-slovak-police-
officers-find-comfort-abroad/. 

CAS.sk (2024) Lex Assassination has come into force: What awaits top constitutional officials and new 
grounds for banning assemblies (‘Začal platiť lex atentát: Čo čaká najvyšších ústavných činiteľov a 
nové dôvody na zákaz zhromaždenia’), https://www.cas.sk/clanok/2946541/zacal-platit-lex-atentat-co-
caka-najvyssich-ustavnych-cinitelov-a-nove-dovody-na-zakaz-zhromazdenia/.  

37 

 
Civil Liberties Union for Europe (2024), Contribution from Civil Liberties Union for Europe for the 
2024 Rule of Law Report. 

Constitutional Court of the Slovak Republic (2023), Decision No. PL. ÚS 1/2022-270 from 21 June 
2023. 

Constitutional Court of the Slovak Republic (2024), Decision No. PL. ÚS 3/2024-112 from 28 February 
2024. 

Constitutional  Court  of  the  Slovak  Republic  (2024),  Press  release  No  30/2024  of  3  July  2024, 
https://www.ustavnysud.sk/informacie-pre-verejnost-a-media/media/tlacove-spravy. 

Consultative Council of European Prosecutors (CCPE) (2018), Opinion No. 13(2018): Independence, 
accountability and ethics of prosecutors. 

Council of Europe Commission for the Efficiency of Justice (2021), Study on the functioning of judicial 
systems  in  the  EU  Member  States,  https://commission.europa.eu/publications/two-studies-prepared-
european-commission-cepej-european-commission-efficiency-justice-functioning-3_en. 

Council  of  Europe:  Committee  of  Ministers  (2000),  Recommendation  CM/Rec(2000)19  of  the 
Committee of Ministers to member states on the role of public prosecution in the criminal justice system. 

Council of Europe: Venice Commission (2010),  Report on the Independence of the Judicial System 
Part II: The Prosecution Service (CDL-AD(2010)040). 

Council of Europe: Venice Commission (2014), Interim Opinion No. 785/2014 on the draft law on the 
state prosecution office of Montenegro (CDL-AD(2014)042). 

Council of Europe: Venice Commission (2016), Rule of Law Checklist, (CDL-AD(2016)007rev). 

Daily Aktuality (2 November 2023), Candidate for Chief of Police Inspection Zurian: I want to end the 
war in the police, I will set up a new team (Kandidát na šéfa policajnej inšpekcie Zurian: Chcem ukončiť 
vojnu  v  polícii,  zriadim  nový  tím),  https://www.aktuality.sk/clanok/keNmiSE/kandidat-na-sefa-
policajnej-inspekcie-zurian-chcem-ukoncit-vojnu-v-policii-zriadim-novy-tim/.  

Denník Postoj (8 January 2024), Pellegrini introduces the change in criminal codes, the amendment was 
tailor-made  for  their  people,  according  to  ex-minister  Karas  (Zmena  trestných  kódexov  Pellegrini 
Karas), 
svojim 
zavádza, 
https://www.postoj.sk/144823/pellegrini-klame-novelu-usil-smer-na-mieru-svojim-ludom-tvrdi-
exminister-karas.  

na  mieru 

exminister 

ľuďom, 

novelu 

tvrdí 

ušili 

Denník  N  (1  February  2024),  There  were  30,000  people  at  the  Bratislava  protest,  the  most  since 
demonstrations against the amendment to the Criminal Code began (Na bratislavskom proteste bolo 30-
tisíc 
zákona), 
demonštrácií 
https://dennikn.sk/minuta/live/20553/protesty-ficova-vlada-urad-specialnej-prokuratury-2024-02-01. 

Trestného 

začiatku 

najviac 

novele 

proti 

ľudí, 

od 

Denník  N  (12  September  2023),  We  have  uncovered  how  Zilinka  uses  paragraph  363  in  favour  of 
prominent  people  (Odkryli  sme,  ako  u  Žilinku  používajú  paragraf  363  v  prospech  prominentov), 
https://dennikn.sk/3553521/odkryli-sme-ako-u-zilinku-pouzivaju-paragraf-363-v-prospech-
prominentov/. 

Denník N (14 February 2024), Who is Pavol Gašpar, whom the government unexpectedly proposed as 
the head of SIS? Only the president can stop it (Kto je Pavol Gašpar, ktorého vláda nečakane navrhla 
za  šéfa  SIS.  Zastaviť  ho  môže  len  prezidentka),  https://dennikn.sk/3828081/kto-je-pavol-gaspar-
ktoreho-vlada-necakane-schvalila-za-sefa-sis-zastavit-ho-moze-len-prezidentka/?ref=inc.  

Denník N (19 March 2024), The Special Prosecutor’s Office indicted the head of the government office 
(Špeciálna 
Gedru), 
vedúceho 
prokuratúra 
https://dennikn.sk/minuta/3892160/?ref=mwat 

obvinila 

Juraja 

úradu 

vlády 

Denník N (2 November 2023), Zurian was promoted as director of inspection by Shutai Eshtok (Skrýval 
som sa v Bielorusku, Lučanského zavraždili, hovorí Zurian, ktorého Šutaj Eštok presadil za riaditeľa 

38 

 
inšpekcie), 
zurian-ktoreho-chce-sutaj-estok-za-riaditela-inspekcie/.  

https://dennikn.sk/3656195/skryval-som-sa-v-bielorusku-lucanskeho-zavrazdili-hovori-

Denník N (24 April 2024), Even the President of the Supreme Court is already talking about interference 
in the independence of the judiciary. He perceives Fico’s words as coercion (O zásahu do nezávislosti 
súdnictva  už  hovorí  aj  predseda  Najvyššieho  súdu.  Ficove  slová  vníma  ako  nátlak), 
https://dennikn.sk/3958903/o-zasahu-do-nezavislosti-sudnictva-uz-hovori-aj-predseda-najvyssieho-
sudu-ficove-slova-vnima-ako-natlak/?ref=impm#rtm_source=mpmapp.  

Denník N (29 January 2024), The cases of Vyboh and Haščák will be forever time-barred if the Criminal 
Code is amended even for one day (Prípady Výboha a Haščáka budú navždy premlčané, ak Trestný 
zákon  zmenia  hoci  len  na  jeden  deň),  https://dennikn.sk/3800119/pripady-vyboha-a-hascaka-budu-
navzdy-premlcane-ak-trestny-zakon-zmenia-hoci-len-na-jeden-den/. 

Denník N (6 February 2024), The regional court upheld the Minister’s decision. Two police  officers 
cannot  return  to  work,  https://dennikn.sk/3813121/krajsky-sud-potvrdil-rozhodnutie-sutaja-estoka-
dvaja-policajti-zo-siedmich-sa-nemozu-vratit-do-prace/?ref=inc. 

Directorate-General  for  Communication  (2024),  Flash  Eurobarometer  XX:  businesses’  attitudes 
towards corruption in the EU. 

Directorate-General for Communication (2024), Special Eurobarometer XX: corruption. 

El  Espanol  (2024),  European  judges  put  Spain  on  a  level  with  Hungary  due  to  the  deterioration  of 
judicial  independence (Jueces europeos  ponen a  España  al  nivel  de  Hungría por  el deterioro  de  la 
independencia 
https://www.elespanol.com/espana/politica/20240613/jueces-europeos-
ponen-espana-nivel-hungria-deterioro-independencia-judicial/862664241_0.html. 

judicial), 

EPPO (2023), ‘Statement regarding the legislative amendments proposed by the Slovak government’ 
https://www.eppo.europa.eu/en/news/statement-regarding-legislative-amendments-proposed-slovak-
government.  

Euractiv  (1  September  2021),  Prosecutor  General  dismisses  high-level  corruption  charges, 
https://www.euractiv.com/section/politics/short_news/prosecutor-general-dismisses-high-level-
corruption-charges/.  

Euractiv  (11  January  2024),  Fico’s  government  mulls  dismantling  agency  that  handles  corruption, 
https://www.euractiv.com/section/politics/news/ficos-government-mulls-dismantling-agency-that-
handles-corruption/.  

Euractiv  (2  February  2024),  Opposition  to  Slovakian  PM’s  proposed  criminal  reforms  grows, 
https://www.euractiv.com/section/politics/news/opposition-to-slovakian-pms-proposed-criminal-
reforms-grows/. 

Euractiv  (23  June  2023),  Slovak  officials  hired  to  fight  farm  subsidy  fraud  arrested  for  fraud, 
https://www.euractiv.com/section/politics/news/slovak-officials-hired-to-fight-farm-subsidy-fraud-
arrested-for-fraud/. European Commission (2020), 2020 Rule of Law Report, Country Chapter on the 
rule of law situation in Slovakia.  

European Commission (2021), 2021 Rule of Law Report, Country Chapter on the rule of law situation 
in Slovakia.  

European Commission (2022), 2022 EU Justice Scoreboard. 

European Commission (2022), 2022 Rule of Law Report, Country Chapter on the rule of law situation 
in Slovakia.  

European Commission (2023), 2023 Rule of Law Report, Country Chapter on the rule of law situation 
in Slovakia.  

European Commission (2024), 2024 EU Justice Scoreboard.  

39 

 
European Federation of Journalists (10 June 2024), Slovakia: Media freedom groups call on Parliament 
to  reject  public  broadcasting  bill,  https://europeanjournalists.org/blog/2024/06/10/media-freedom-
groups-call-on-slovakias-parliament-to-reject-public-broadcasting-bill/.  

European Implementation Network (2024), Contribution from the European Implementation Network 
for the 2024 Rule of Law Report. 

European  Network  of  National  Human  Rights  Institutions  (2024),  Contribution  from  the  European 
Network of National Human Rights Institutions for the 2024 Rule of Law Report.  

European Parliament, Resolution of 17 January 2024 on the planned dissolution of key anti-corruption 
structures 
law,  2023/3021(RSP), 
rule  of 
https://www.europarl.europa.eu/doceo/document/TA-9-2024-0021_EN.pdf. 

in  Slovakia  and 

implications 

the 

for 

its 

Government  Accountability  Project/  European  Whistleblowing  Institute  (22  December  2023), 
Memorandum regarding breaches of EU law by the proposed Amendment to Act no. 54/2019 Coll. on 
the  Protection 
189/2023  Coll., 
https://whistleblowingnetwork.org/WIN/media/pdfs/EWI_GAP_Legal-Memo_Slovakia_Final.pdf.  

of  Whistleblowers 

by  Act  No. 

amended 

as 

Government  of 
https://www.vlada.gov.sk/share/RVLP/lpv_sr-14122022.pdf?csrt=12208025320509349348. 

the  Slovak  Republic 

(2022),  Legislative 

rules  of 

the  Government 

Government of the Slovak Republic (2023), Decision No. 702/2023 of 6 December 2023, proposing 
amendments to Act No 54/2019 Coll., on the protection of whistleblowers, to be adopted by Parliament, 
https://rokovania.gov.sk/RVL/Material/29080/1. 

Government of the Slovak Republic (2023), Decision No. 703/2023 of 6 December 2023, proposing 
amendments to Act No 54/2019 Coll., on the protection of whistleblowers, to be adopted in a fast-track 
legislative procedure, https://rokovania.gov.sk/RVL/Material/29081/1. 

Government of the Slovak Republic (2023), Programme Statement of the Government of the Slovak 
Republic, 2023-2027, https://www.nrsr.sk/web/Dynamic/DocumentPreview.aspx?DocID=535376. 

Government  of  the  Slovak  Republic  (2023a),  ‘Usnesenie  vlády  Slovenskej  republiky  č.  576  z  2. 
novembra  2023  k  návrhu  na  odvolanie  a  vymenovanie  členov  Súdnej  rady  Slovenskej  republiky’ 
(‘Decision of the Government of the Slovak Republic No. 576 of 2 November 2023 on the proposal to 
the  Slovak  Republic’) 
dismiss  and  appoint  members  of 
https://rokovania.gov.sk/RVL/Resolution/21201/1. 

Judicial  Council  of 

the 

Government  of the  Slovak  Republic  (2024),  ‘Národná  rada  SR  schválila  novelu  Trestného  zákona’ 
(‘Slovak 
Code’) 
amendments 
https://www.justice.gov.sk/aktualne-temy/narodna-rada-sr-schvalila-novelu-trestneho-zakona/ 

Parliament 

approved 

Criminal 

the 

to 

Government  of  the  Slovak  Republic  (2024),  ‘Prezidentka  SR  vymenovala  Roberta  Fica  do  funkcie 
predsedu  vlady'  (‘President  of  the  Slovak  Republic  appointed  Robert  Fico  as  the  Prime  Minister’) 
https://www.vlada.gov.sk/prezidentka-sr-vymenovala-roberta-fica-do-funkcie-predsedu-vlady-
sr/?csrt=6111271311410479523. Government of the Slovak Republic (2024), Input from Slovakia for 
the 2024 Rule of Law Report. 

Government  of  the  Slovak  Republic,  (2023b),  Legislative  Task  Plan  of  the  Government  for  2024, 
https://www.slov-lex.sk/legislativne-
procesy?p_p_id=processDetail_WAR_portletsel&p_p_lifecycle=2&p_p_state=normal&p_p_mode=vi
ew&p_p_cacheability=cacheLevelPage&p_p_col_id=column-
2&p_p_col_count=1&_processDetail_WAR_portletsel_fileCooaddr=COO.2145.1000.3.5979905&_p
rocessDetail_WAR_portletsel_file=Vlastn%C3%BD--materi%C3%A1l-
mpk.docx&_processDetail_WAR_portletsel_action=getFile.  

Greco,  5th  Evaluation  Round  –  Second  Compliance  Report  (17  April  2024),  Slovakia, 
GrecoRC5(2023)9, https://www.coe.int/en/web/greco/evaluations/slovakia.  

40 

 
HNonline.sk (2024), President of the Supreme Court Šikuta reacts to Fico: This is a political attack. It 
is  unthinkable  to  release  the  entire  database  (Šéf  Najvyššieho  súdu  Šikuta  reaguje  na  Fica:  Ide  o 
politický  útok.  Je  nemysliteľné  vydať  celú  databázu),  https://hnonline.sk/slovensko/96146006-sef-
najvyssieho-sudu-sikuta-reaguje-na-fica-ide-o-politicky-utok-je-nemyslitelne-vydat-celu-databazu,  24 
April 2024.  

Idnes.cz (2024), Lex assassination. Fico’s Government wants greater protection, as well as annuity for 
life  for  politicians  (Lex  atentát.  Ficova  vláda  chce  pro  politiky  větší  ochranu  i  doživotní  rentu), 
https://www.idnes.cz/zpravy/zahranicni/slovensko-lex-atentat-vlada-robert-fico-ochranka-dozivotni-
renta.A240612_123335_zahranicni_kha.  

Initiative For the Rule of Law (2023), Opinion of the "Initiative for the Rule of Law" on the current 
situation 
https://www.pravnystat.sk/wp-
content/uploads/2023/12/14.12.2023_Stanovisko-%E2%80%9EIniciativy-za-pravny-stat-k-
sucasnemu-stavu-legislativneho-procesu-na-Slovensku.pdf.  

legislative 

Slovakia, 

process 

in 

Initiative  For  the  Rule  of  Law  (2023),  What  Are  the  Rules  for  Those  Who  Set  the  Rules? 
https://www.pravnystat.sk/wp-content/uploads/2023/12/ake-su-pravidla-pre-tych-co-urcuju-pravidla-
sk_1.pdf.  

International Press Institute (13 December 2023), Slovakia: Media freedom groups urge MPs to oppose 
cuts  to  RTVS  budget,  https://ipi.media/slovakia-media-freedom-groups-urge-mps-to-oppose-cuts-to-
rtvs-budget/.  

Jurist – Legal News & Commentary (9 February 2024), Thousands protest in Slovakia over proposed 
criminal 
https://www.jurist.org/news/2024/02/thousands-protest-in-slovakia-over-
proposed-criminal-law-reforms/.  

reform, 

law 

Ministry  of  Justice  (2024),  Supreme  Court  refused  a  ministerial  control  of  the  information  system 
(Najvyšší 
systému), 
https://www.justice.gov.sk/aktualne-temy/najvyssi-sud-odmietol-ministersku-kontrolu-informacneho-
systemu/.  

informačného 

ministerskú 

odmietol 

kontrolu 

súd 

Ministry of the Interior (2024), Press release ‘The Minister of the Interior will submit a proposal to the 
Government  to  withdraw  the  amendment  to  the  Act  on  the  Protection  of  Whistleblowers’, 
https://www.minv.sk/?tlacove-spravy&sprava=minister-vnutra-predlozi-vlade-navrh-na-spatvzatie-
novely-zakona-o-ochrane-oznamovatelov-protispolocenskej-cinnosti. 

National Council of the Slovak Republic (2023), Brief overview of legislative activity of the National 
Council 
Republic, 
https://www.nrsr.sk/web/Dynamic/DocumentPreview.aspx?DocID=538007.  

Slovak 

the 

of 

National  Council  of  the  Slovak  Republic  (2024),  Bill  amending  Act  No  213/1997  on  non-profit 
organisations 
acts. 
general 
https://www.nrsr.sk/web/Default.aspx?sid=zakony/cpt&ZakZborID=13&CisObdobia=9&ID=245. 

providing 

services 

interest 

related 

other 

and 

of 

Noviny.sk  (2024),  Lex  atentat:  New  measures  face  criticism  and  won’t  avoid  to  be  amended  (Lex 
atentát: Nové opatrenia čelia kritike a nevyhnú sa změnám), https://www.noviny.sk/slovensko/937767-
lex-atentat-nove-opatrenia-celia-kritike-a-nevyhnu-sa-zmenam. 

Office  of  the  Government  Plenipotentiary  for  the  Development  of  the  Civil  Society  (2023),  Final 
Summary Report to the Final Monitoring Report, Supporting Partnership and Dialogue in the Area of 
Participative 
2, 
https://www.minv.sk/swift_data/source/rozvoj_obcianskej_spolocnosti/participacia/2024/monitorovac
ie_spravy/F_NPPARTI_2_zaverecna_sumarizacna_sprava_1_12_2020_31_12_2023.pdf. 

Creation 

Policies 

Public 

of 

Open letter from 11 prosecutors from the former Special Prosecutor’s Office to the Prosecutor General 
from 22 April 2024. 

41 

 
Politico  (29  February  2024),  Slovakian  PM  Fico’s  plan  to  reduce  corruption  penalties  suspended, 
https://www.politico.eu/article/slovakia-prime-minister-robert-fico-reduce-corruption-penalty-
suspended/. 

President of the Slovak Republic (2024),  ‘Podpísané a vrátené zákony’ (‘Signed and vetoed laws’), 
https://www.prezident.sk/page/podpisane-a-vratene-zakony/. 

President of the Slovak Republic (2024), 'Návrh na začatie konania o súlade právnych predpisov podľa 
čl. 125 ods. 1 písm. a) Ústavy Slovenskej republiky’ (‘Proposal to initiate proceedings on compliance 
of  legal  acts,  pursuant  to  Article  125(1)(a)  of  the  Constitution  of  the  Slovak  Republic’), 
https://www.prezident.sk/upload-files/93113.pdf. 

Prosecutor-General (20 December 2023), Report of the Prosecutor General of the Slovak Republic on 
the activities of the Prosecutor's Office and the findings of the Prosecutor's Office on the state of legality 
in  the  Slovak  Republic  for  the  year  2022  (Správa  generálneho  prokurátora  Slovenskej  republiky  o 
činnosti prokuratúry a poznatkoch prokuratúry o stave zákonnosti v Slovenskej republike za rok 2022) 
https://www.genpro.gov.sk/fileadmin/Sprava_o_cinnosti/2022_sprava_o_cinnosti_GP.pdf.  

Public Defender of Rights (18 June 2024), I recommend to the Government and Parliament to adopt 
higher safeguards to protect the constitutional freedom of assembly of the citizens. I do not recommend 
to make not paying a fine a crime (Vláde a Parlamentu odporúčam prijať vyššie záruky na ochranu 
ústavného práva na zhromažďovanie občanov. Z neplatenia pokút spraviť trestný čin neodporúčam), 
https://vop.gov.sk/wp-content/uploads/2024/06/Tlacova-sprava-VOP-18.-06.-2024.pdf.  

Public Defender of Rights (2024), Contribution from the Public Defender of Rights for the 2024 Rule 
of Law Report.  

Reporters without Borders (13 December 2023), Slovakia: RSF and its partners urge parliament and 
president 
independence, 
https://rsf.org/en/slovakia-rsf-and-its-partners-urge-parliament-and-president-halt-attempts-
undermine-public. 

broadcaster’s 

undermine 

attempts 

public 

halt 

the 

to 

to 

Reuters  (1  February  2024),  Slovaks  ratchet  up  protests  against  government’s  criminal  law  reform, 
https://www.reuters.com/world/europe/slovaks-ratchet-up-protests-against-governments-criminal-
law-reform-2024-02-
01/#:~:text=BRATISLAVA%2C%20Feb%201%20(Reuters),cases%20close%20to%20the%20premie
r. 

Reuters  (24  November  2022),  Slovak  police  renew  bribery  charge  against  central  bank  governor 
Kazimir  –  lawyer,  https://www.reuters.com/markets/europe/slovak-police-again-charge-central-bank-
governor-kazimir-over-bribery-lawyer-2022-11-24/.  

Reuters  (8  February  2024),  Slovakia  approves  criminal  law  reforms  that  sparked  protests, 
https://www.reuters.com/world/europe/slovakia-approves-criminal-law-reforms-that-sparked-protests-
2024-02-08/. Reuters Press Agency/Daily SME (2023),  Ústavný súd prijal na ďalšie konanie návrh 
prezidentky  (‘The  Constitutional  Court  accepted  the  President's  proposal  for  further  proceedings’), 
https://domov.sme.sk/c/23247428/ustavny-sud-prijal-na-dalsie-konanie-navrh-prezidentky.html. 

RTVS (14 May 2024), Ján Mazák did not succeed with his constitutional complaint against his dismissal 
as a President of the Judicial Council (Ján Mazák neuspel s ústavnou sťažnosťou proti svojmu odvolaniu 
z  čela  súdnej  rady),  https://spravy.rtvs.sk/2024/05/jan-mazak-neuspel-s-ustavnou-staznostou-proti-
svojmu-odvolaniu-z-cela-sudnej-rady/. 

RTVS (15 May 2024), Ján Hrubala resigns from the post of President of the Specialised Criminal Court 
(Ján Hrubala končí ako predseda Špecializovaného trestného súdu), https://spravy.rtvs.sk/2024/05/jan-
hrubala-konci-ako-predseda-specializovaneho-trestneho-sudu/.  

RTVS  (3  June  2024)  Former  members  of  the  Judicial  Council  were  not  successful  with  their 
constitutional  complaints  against  their  dismissal  (Bývalí  členovia  Súdnej  rady  neuspeli  s  ústavnými 

42 

 
sťažnosťami proti ich odvolaniu), https://spravy.rtvs.sk/2024/06/byvali-clenovia-sudnej-rady-neuspeli-
s-ustavnymi-staznostami-voci-ich-odvolaniu/.  

RTVS (2024) Parliament approved Lex Assassination. Another package of changes should come in 
autumn, confirmed Tibor Gašpar (‘Parlament schválil lex atentát. Ďalší balík zmien by mal prísť na 
jeseň, potvrdil Tibor Gašpar’), https://spravy.rtvs.sk/2024/06/parlament-schvalil-lex-atentat/. 

RTVS (15 July 2024) President P. Pellegrini dismissed two members of the Slovak Judicial Council 
(‘Prezident 
SR‘), 
rady 
https://spravy.rtvs.sk/2024/07/prezident-p-pellegrini-odvolal-dvoch-clenov-sudnej-rady-sr/. 

Pellegrini 

odvolal 

Súdnej 

členov 

dvoch 

P. 

SITA  (15  December  2023),  According  to  Gedra,  the  amendment  to  the  Act  on  the  Protection  of 
Whistleblowers improves the provisions so that the institute cannot be abused (Novela zákona o ochrane 
oznamovateľov  podľa  Gedru  zdokonaľuje  ustanovenia,  aby  nebolo  možné  inštitút  zneužívať), 
https://sita.sk/novela-zakona-o-ochrane-oznamovatelov-podla-gedru-zdokonaluje-ustanovenia-aby-
nebolo-mozne-institut-zneuzivat/.  

Slovak Bar Association (2024), Contribution from the Slovak Bar Association for the 2024 Rule of Law 
Report.  

Slovak Judicial Council (2023), Decision No 63/2023 on the crime of abuse of law, as stipulated in 
Section 326a of the Criminal Code, from 16 February 2023, https://zasadnutia.sudnarada.sk/trestny-
cin-ohybania-prava-podla-326a-trestneho-zakona-a-suvisiacich-ustanoveni/ 

Slovak Judicial Council (2024a), Statement of nine members of the Judicial Council on the questions 
posed  by  the  European  Commission  in  the  context  of  the  consultations  on  the  Rule  of  Law  Report, 
https://www.sudnarada.gov.sk/data/files/2054_ts_15022024.pdf.  

Slovak  Judicial  Council  (2024b),  Judicial  Council  of  the  Slovak  Republic  again  in  incomplete 
composition 
zložení), 
https://www.sudnarada.gov.sk/sudna-rada-slovenskej-republiky-opat-v-neuplnom-zlozeni/.  

Slovenskej 

neúplnom 

republiky 

(Súdna 

rada 

opäť 

v 

Slovak Judicial Council (2024c), Proposal to dismiss the president of the Judicial Council of the Slovak 
Republic,  prof.  JUDr.  Ján  Mazák,  PhD.,  from  his  function  as  the  president  of  the  Judicial  Council 
(Návrh na odvolanie predsedu Súdnej rady Slovenskej republiky prof. JUDr. Jána Mazáka, PhD., z 
funkcie predsedu súdnej rady’) https://zasadnutia.sudnarada.sk/data/att/15534.pdf. 

Slovak Judicial Council (2024d), Uznesenie č. 103/2004 zo 16. apríla 2024 (‘Decision No. 103/2024 of 
16 April 2024’) https://zasadnutia.sudnarada.sk/data/att/15554.pdf. 

Slovak Judicial Council (2024e), Constitutional complaint pursuant to Article 127 of the Constitution 
of the Slovak Republic and a Request for interim measures (Ústavná sťažnosť podľa čl. 127 Ústavy 
Slovenskej 
opatrenia), 
https://www.sudnarada.gov.sk/data/files/2093_ts_23_04_2024_us_jm.pdf. 

dočasného 

republiky 

vydanie 

Návrh 

na 

a 

Slovak Judicial Council (2024f), Statement of the President of the Judicial Council of 15 April 2024 
(Stanovisko 
2024), 
rady 
https://www.sudnarada.gov.sk/data/files/2088_rozhodnutie-o-zaradeni-navrhu-na-odvolanie.pdf 

predsedu 

apríla 

Súdne 

15. 

zo 

Slovak Judicial Council (2024g), Decision No. 136/2024 of 17 April 2024 (Uznesenie č. 136/2024 zo 
17  apríla  2024),  https://zasadnutia.sudnarada.sk/stanovisko-sudnej-rady-slovenskej-republiky-k-
tlacovej-besede-predsedu-vlady-slovenskej-republiky-a-ministra-spravodlivosti-slovenskej-republiky-
konanej-4-aprila-2024/. 

17 
Slovak 
https://www.sudnarada.gov.sk/data/files/2124_uznesenie-c-191-2024-lex-atentat.pdf. 

(2024h),  Decision  No 

Judicial  Council 

191/2024 

of 

June 

2024, 

Slovak Judicial Council (2024i) Press release of 15 July: The Judicial Council of the Slovak Republic 
has  two  fewer  members  (‘Súdna  rada  Slovenskej  republiky  má  o  dvoch  členov  menej’), 
https://www.sudnarada.gov.sk/sudna-rada-slovenskej-republiky-ma-o-dvoch-clenov-menej/. 

43 

 
Slovak  National  Centre  for  Human  Rights  (2023),  2023  Rule  of  Law  Report  –  Slovakia, 
https://www.snslp.sk/sledovanie-pravneho-statu/sprava-o-pravnom-state/.  

Slovak National Centre for Human Rights (2023a), Rule of Law Tracker, https://www.snslp.sk/en/rule-
of-law-tracker/tracker/.  

Slovak National Centre for Human Rights (2023b), I see myself as an ordinary person. Human rights 
defenders  in  Slovakia,  https://www.snslp.sk/wp-content/uploads/Obhajcovia-a-obhajkyne-ludskych-
prav-na-Slovensku.pdf. 

Slovak National Centre for Human Rights (2023c), Hateful language on political Facebook profiles. 
Report  on 
report,  https://www.snslp.sk/wp-
content/uploads/Nenavistny-jazyk-na-politickych-fb-profiloch-2023_web.pdf. 

the  monitoring  of  hate 

thematic 

speech, 

Slovak Press Agency (2024), Almost 80 non-governmental organizations request to revert the decision 
of  Minister  Susko, 
launching  a  petition,  https://sita.sk/takmer-80-mimovladok-ziada-zrusit-
rozhodnutie-ministra-suska-spustili-peticiu/, 21 February 2024.  

Slovak Press Agency (2024a), The President of the Supreme Court strongly objected to Fico's claims 
about the refusal to cooperate with the inspection from the ministry (Šéf Najvyššieho súdu sa rázne 
ohradil  voči  tvrdeniam  Fica  o  odmietnutí  súčinnosti  pri  bleskovej  kontrole  z  ministerstva), 
https://sita.sk/sef-najvyssieho-sudu-sa-razne-ohradil-voci-tvrdeniam-fica-o-odmietnuti-sucinnosti-pri-
bleskovej-kontrole-z-ministerstva/.  

SME  News  (8  February  2024),  Protests  and  obstruction  did  not  work,  parliament  approved  new 
criminal  codes,  (Protesty  ani  obštrukcie  nezabrali,  parlament  schválil  nové  trestné  kódexy), 
https://domov.sme.sk/c/23279812/trestny-zakon-hlasovanie-novela-ficova-vlada.html?ref=av-center. 

SME.sk (19 February 2024) Gašpar sent me for a bribe directly to Bödör, Slobodak described. The trial 
of the oligarch began before the statute of limitations (Gašpar ma poslal po úplatok priamo za Bödörom, 
opísal 
premlčaním), 
https://domov.sme.sk/c/23284598/norbert-bodor-kauza-valceky-sud-slobodnik-
vypoved.html?ref=temacl. 

oligarchom 

Slobodník. 

Proces 

začali 

pred 

s 

SME.sk (2024), Judges for Open Judiciary appeal to the politicians not to undermine public trust for 
the  courts  by  their  statements  (Iniciatíva  Za  otvorenú  justíciu  apeluje  na  politikov,  aby  neznižovali 
výrokmi dôveru verejnosti k súdom), https://domov.sme.sk/c/23345960/iniciativa-za-otvorenu-justiciu-
apeluje-na-politikov-aby-neznizovali-vyrokmi-doveru-verejnosti-k-sudom.html. 

SME.sk (27 October 2023), Minister Šutaj Eštok temporarily suspended six police officers around Ján 
Čurilla (Minister Šutaj Eštok dočasne pozbavil výkonu funkcie šesticu policajtov okolo Jána Čurillu 
Čítajte 
https://domov.sme.sk/c/23237277/od-novembra-sa-rusia-funkcie-policajnych-
viceprezidentov.html?ref=av-center.  

viac), 

SME (2024) Pellegrini dismissed two members of the Judicial Council, which were nominated by the 
former  President  (‘Pellegrini  odvolal  dvoch  členov  Súdnej  rady,  ktorých  vymenovala  ešte  bávalá 
prezidentka‘), 
https://domov.sme.sk/c/23357474/sudna-rada-prezident-peter-pellegrini-zuzana-
caputova.html. 

Special Prosecutor’s Office (20 December 2023), Report on the activities of the Special Prosecutor’s 
Office and the  findings  of the Special  Prosecutor’s  Office  on the  state  of legality  for the  year  2022 
(Správa  o  činnosti  Úradu  špeciálnej  prokuratúry  a  poznatky  Úradu  špeciálnej  prokuratúry  o  stave 
zákonnosti 
), 
https://www.genpro.gov.sk/fileadmin/Sprava_o_cinnosti/2022_sprava_o_cinnosti_USP.pdf . 

2022’ 

rok 

za 

Specialised  Criminal  Court 
https://www.justice.gov.sk/sudy-a-rozhodnutia/sudy/rozhodnutia/3af3dea1-4fe1-4c3f-b8d6-
f677e94d671e:26ed92f3-d277-4bc2-b32a-a5.  

(2023),  Judgment  No.  4T/1/2023  of  24  February  2023. 

44 

 
Ta3  (2024),  Lex  atentat  did  unite,  however,  the  critics.  Do  we  really  need  such  changes  to  the 
legislation?  (Lex  atentát  zjednotil,  ale  kritikov.  Naozaj  potrebujeme  takéto  zmeny  zákonov?), 
https://www.ta3.com/relacia/945159/lex-atentat-zjednotil-ale-kritikov-naozaj-potrebujeme-taketo-
zmeny-zakonov.  

Teraz.sk (27 November 2023), Eštok filed a criminal complaint for providing protection to the Čurillas, 
https://www.teraz.sk/slovensko/sutaj-estok-podava-trestne-oznameni/757239-clanok.html. 

The  Guardian  (29  June  2023),  Slovakian  anti-corruption  official  arrested  in  corruption  inquiry, 
https://www.theguardian.com/world/2023/jun/29/slovakian-anti-corruption-official-arrested-in-
corruption-inquiry.  

The Slovak Spectator (11 August 2023(, Police detain ex-top cop Gašpar again; Fico claims his party 
is victim of "attack",  https://spectator.sme.sk/c/23204019/police-detain-ex-top-cop-gaspar-again-fico-
claims-his-party-is-victim-of-attack.html. 

The Slovak Spectator (11 December 2023), New charges against ex police chief, oligarch and others, 
https://spectator.sme.sk/c/23255359/new-charges-against-gaspar-bodor-and-some-others.html.  

The  Slovak  Spectator  (15  November  2023),  Changes  to  the  Public  Procurement  Law  –  Take  Six, 
https://spectator.sme.sk/c/23244416/changes-to-the-public-procurement-law-take-six.html.  

The Slovak Spectator (22 August 2023), Judge approves infamous ex-top police official’s plea deal, 
https://spectator.sme.sk/c/23208047/judge-approves-infamous-ex-top-police-officials-plea-deal.html. 

The Slovak Spectator (26 October 2023), Charged ex-minister elected presiding officer of parliament, 
https://spectator.sme.sk/c/23236935/charged-ex-minister-elected-presiding-officer-of-
parliament.html.  

The Slovak Spectator News Digest (20 February 2024), Minister’s plan to rewrite whistleblowing bill 
again, 
https://spectator.sme.sk/c/23285219/news-digest-ministers-vague-plan-to-rewrite-
whistleblowing-bill-again.html 

Transparency International (2021), The cancellations call for a clear justification in front of the public. 
The  legality  of  the  criminal  charges  had  previously  been  upheld  by  the  Supreme  Court  and  the 
Constitutional Court. 

Transparency International (2024), Corruption Perceptions Index 2023. 

Transparency International (29 June 2023), Smer is not pretending anything: it has sent a million euros 
from a transparent account to its own agency (Smer sa na nič nehrá. Z transparentného účtu poslal 
milión  eur  do  vlastnej  agentúry),  https://volby.transparency.sk/parlament2023/aktuality/smer-sa-na-
nic-nehra-z-transparentneho-uctu-poslal-milion-eur-do-vlastnej-agentury. 

Transparency  International  (6  December  2023),  The  dissolution  of  the  Special  Prosecutor’s  Office 
comes at a time when it has real results (RUŠENIE ŠPECIÁLNEJ PROKURATÚRY PRICHÁDZA V 
ČASE, KEĎ MÁ REÁLNE VÝSLEDKY, SPUSTILI SME PETÍCIU), https://transparency.sk/sk/rusenie-
specialnej-prokuratury-prichadza-v-case-ked-ma-realne-vysledky-spustili-sme-peticiu/. 

Transparency International (8 February 2024), The approved amendments to the criminal code weakens 
the rule of law and the fight against corruption, https://transparency.sk/sk/schvalena-novela-trestneho-
zakona-oslabuje-pravny-stat-a-boj-s-korupciou/. 

against  Corruption 

UN CoSP (2023), Implementation Review Group: State of the implementation of the United Nations 
Convention 
2023), 
Executive 
6, 
CAC/COSP/IRG/II/4/1/Add. 
https://www.unodc.org/documents/treaties/UNCAC/WorkingGroups/ImplementationReviewGroup/4-
8September2023/CAC-COSP-IRG-II-41-Add.6/CAC-COSP-IRG-II-41-Add.6-E.pdf. 

September 

Summary 

(4-8 

– 

Whistleblower Protection Office (15 December 2023), Interventions in the Whistleblower Protection 
Act will bring legal uncertainty, thwart investigations and deter whistleblowers (Zásahy do zákona na 

45 

 
ochranu oznamovateľov prinesú právnu neistotu, marenie vyšetrovania a odstrašia oznamovateľov), 
https://www.oznamovatelia.sk/zasahy-do-zakona-na-ochranu-oznamovatelov-prinesu-pravnu-
neistotu-marenie-vysetrovania-a-odstrasia-oznamovatelov/.  

Whistleblower Protection Office (February 2024), Statement ‘What the decision of the regional court 
in  the  case  of  protected  police  officers  means’,  https://www.oznamovatelia.sk/co-znamena-
rozhodnutie-krajskeho-sudu-v-pripade-chranenych-policajtov/. 

Whistleblower  Protection  Office  (January  2024),  Nonsense  about  our  office  –  we  refute  hoaxes 
(Nezmysly  o  našom  úrade  –  vyvraciame  hoaxy),  https://www.oznamovatelia.sk/nezmysly-o-nasom-
urade-vyvraciame-hoaxy/. 

Zastavme  korupciu  (23  February  2024),  Let’s  Stop  Corruption  collects  signatures  on  public 
procurement  amendment  (Zastavme  korupciu  zbiera  podpisy  k  novele  o  verejnom  obstarávaní), 
https://www.teraz.sk/spravy/zastavme-korupciu-zbiera-podpisy-k-novel/776768-clanok.html.  

46 

 
 
 
 
 
 
Annex II: Country visit to Slovakia 

The Commission services held virtual meetings in February 2024 with: 

Investigative Centre of Jan Kuciak 

•  American Chamber of Commerce 
•  Association of Judges 
•  Government Office – Corruption Prevention Department 
•  Government Office - Plenipotentiary for Civil Society Development  
• 
•  Judges For Open Judiciary 
•  Judicial Council  
•  Ministry of Culture 
•  Ministry of Interior 
•  Ministry of Justice 
•  National Centre for Human Rights 
•  National Union of Employers 
•  Office for the Protection of Whistleblowers 
•  Parliament administration (replies received in writing) 
•  Police National Crime Agency 
•  Praesidium of Slovak Police Force 
•  Prosecutor General’s Office  
•  Public Defender of Rights 
•  Slovak Bar Association  
•  Slovak Council for Broadcasting 
•  Slovak Land Fund (replies received in writing) 
•  Slovak Syndicate of Journalists 
•  Slovak Print and Digital Media Association 
•  Special Prosecutor’s Office 
•  Specialised Criminal Court 
•  State  Commission  for  Elections  and  Control  of  Funding  of  Political  Parties  (replies 

received in writing) 

•  Supreme Administrative Court 
•  Supreme Audit Office 
•  Supreme Court 
•  Transparency International 
•  Via Iuris  
•  Zastavme korupciu 

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

•  Amnesty International EU 
•  Centre for Democracy and Technology Europe 
•  Centre for European Volunteering 
•  Civil Liberties Union for Europe 
•  Civil Rights Defenders 

47 

 
 
•  Civil Society Europe 
•  Culture Action Europe 
•  Democracy Reporting International 
•  European Centre for Non-Profit Law 
•  European Civic Forum 
•  European Federation of Journalists 
•  European Partnership for Democracy 
•  European Youth Forum 
•  Free Press Unlimited 
• 
• 
• 
• 
•  JEF Europe 
•  Open Society Foundations 
•  Philanthropy Europe Association 
•  PICUM 
•  Reporters Without Borders 
•  SOLIDAR 
•  Transparency International EU 

International Federation for Human Rights 
International Planned Parenthood Federation 
International Press Institute 
Irish Council for Civil Liberties 

48