COMMISSION STAFF WORKING DOCUMENT 2024 Rule of Law Report Country Chapter on the rule of law situation in Slovenia Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2024 Rule of Law Report The rule of law situation in the European Union
Date: 2024-07-24
Institutions: European Commission, Secretariat-General
Subjects: Slovenia, 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) 824 final  COMMISSION STAFF WORKING DOCUMENT 2024 Rule of Law Report          Country Chapter on the rule of law situation in Slovenia Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 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) 825 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 

Further significant steps have been made on introducing safeguards for judicial independence 
and the autonomy of prosecutors in parliamentary inquiries. Draft amendments to the Judicial 
Council Act envisage, on the judiciary’s initiative, an overhaul of the disciplinary framework 
for  judges.  Some  steps  were  made  on  ensuring  that  the  reform  of  judicial  appointments 
contains  adequate  safeguards  for  judicial  independence,  as  the  previously  envisaged 
probationary  period  without  prescribed  guarantees  was  abandoned.  The  Supreme  Court  is 
prioritising  further  expansion  of  the  electronic  communication  tools  for  court  users.  Some 
steps  were  made  on  increasing  the  level  of  remuneration  of  judges  and  state  prosecutors, 
largely unchanged since 2012, as Government proposed a partial increase and Constitutional 
Court prescribed how its judgment should be implemented. The efficiency gains in past years 
have slowed down, as backlogs slightly increased and length of trials remained a challenge 
particularly  in  money laundering and corruption  cases.  The Supreme Court aims to  address 
the decreasing number of resolved cases in courts. 

Work  on  a  new  national  anti-corruption  strategy  and  action  plan  continued  but  has  not  yet 
been tabled to Parliament for adoption. There have been some improvements in establishing a 
track  record  of  investigations,  prosecutions,  and  final  judgments  in  corruption  offences. 
Investigations  about  possible  high-level  political  influence  in  police  decision-making  are 
ongoing and plans to regulate the prevention of any such influence have been postponed. The 
Commission  for  the  Prevention  of  Corruption  started  recruiting  following  a  delay  in  the 
expected  increase  in  financial  resources.  Legislation  on  supervision  of  conflicts  of  interest 
and incompatibility of office is being reviewed and Parliament has called for an analysis of 
the  laws  on  the  prevention  of  corruption.  Changes  to  the  legislation  on  political  party  and 
campaign  finance  should  increase  the  Court  of  Audit’s  oversight  over  the  largest  political 
parties and over a larger proportion of state funding. The Commission for the Prevention of 
Corruption carried out a risk-analysis of corruption and conflicts of interest in the healthcare 
sector and made recommendations as risks in public procurement persist.  

The  media  regulator  is  expected  to  expand  its  competences  although  challenges  persist 
regarding its resources and the lack of safeguards against risks of political influence. There is 
a functioning self-regulation system for journalists. The new governance model improved the 
independence  of  the  public  service  media,  although  changes  to  the  financing  model  are 
needed  to  address  its  deteriorating  financial  situation.  Stakeholders  called  for  strengthening 
the  media  ownership  transparency  framework,  while  new  measures  are  expected  to  foster 
state advertising transparency. A handbook was prepared to improve the handling of access to 
information  requests,  while  the  Government  took  steps  to  address  journalists’  concerns  on 
legislative initiatives regulating the access to judicial information. Some steps were taken to 
introduce safeguards for the protection of journalists, although online harassment remains a 
source  of  concern.  A  new  framework  for  public  contributions  to  the  media  is  under 
development. 

The share of laws adopted by urgent parliamentary procedure decreased while the duration of 
public  consultations  on  draft  laws  remains  generally  shorter  than  the  recommended  period. 
Parliament continued discussing the constitutional  amendments  to  reduce the Constitutional 
Court’s  considerable  caseload.  The  Ombudsperson  raised  concerns  regarding  the  draft 
amendments to the act on its functioning. The situation of civil society has further improved. 

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RECOMMENDATIONS 

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

•  Significant  further  progress  on  taking  forward  the  process  to  ensure  that  rules  on 
parliamentary inquiries contain adequate safeguards for independence of judges and state 
prosecutors, taking into account European standards on judicial independence.  

•  Some  progress  on  ensuring  that  the  reform  of  judicial  appointments  contains  adequate 
safeguards for judicial independence, taking into account European standards on judicial 
independence. 

•  Some  progress  on  taking  measures  to  increase  the  remuneration  of  judges  and  state 
prosecutors,  taking  into  account  European  standards  on  resources  and  remuneration  for 
the justice system. 

•  Some further progress on the recommendation to adopt the new anti-corruption strategy 
and  action  plan  with  concrete  measures  and  a  timeframe  for  their  implementation,  and 
some progress  to  step up efforts to  ensure  a track record of investigations, prosecutions 
and final judgments in corruption offences, including in high-level cases. 

•  Some  progress  on  starting  the  legislative  process  and  taking  forward  the  process  of 
adopting non-legislative safeguards in relation to the protection of journalists, particularly 
online, taking into account European standards on the protection of journalists. 

On this basis, and considering other developments that took place in the period of reference, 
and  in  addition  to  recalling  the  relevant  commitments  made  under  the  Recovery  and 
Resilience Plan, it is recommended to Slovenia to: 

•  Finalise  the  legislative  process  to  amend  the  rules  on  parliamentary  inquiries  with 
adequate safeguards for independence of judges and state prosecutors, taking into account 
European standards on judicial independence.  

•  Take  further  measures  to  ensure  that  the  reform  of  judicial  appointments  contains 
adequate safeguards for judicial independence, taking into account European standards on 
judicial independence. 

•  Finalise the measures to increase the remuneration of judges and state prosecutors, taking 
into account European standards on resources and remuneration for the justice system. 
•  Complete  the  adoption  of  the  new  anti-corruption  strategy  and  action  plan  and  begin 
implementation and take measures to ensure a track record of investigations, prosecutions 
and final judgments in corruption offences, including in high-level cases. 

•  Further advance with the process of adopting legislative and non-legislative safeguards to 
improve  the  protection  of  journalists,  particularly  online,  taking  into  account  European 
standards on the protection of journalists. 

•  Ensure that rules or mechanisms are in place to provide funding for public service media 
that  is  appropriate  for  the  realisation  of  its  public  service  remit  while  guaranteeing  its 
independence. 

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I. 

JUSTICE SYSTEM  

The Slovenian justice system  has three levels,  with  Local  and District  Courts  (dealing with 
civil, commercial and criminal cases), Labour Courts, a Social Court and an Administrative 
Court  at  first  instance1,  five  Higher  Courts  (including  Higher  Labour  and  Social  Court)  at 
second  instance  and  the  Supreme  Court  at  third  instance  (dealing  mainly  with  appeals  on 
points of law and requests for the protection of legality against judgments of Higher Courts 
and of the Administrative Court). The Constitutional Court carries out constitutional review. 
The  Constitution  provides  for  a  Judicial  Council,  a  sui  generis  body  outside  of  the  three 
branches  of  Government,  which  is  tasked  with  protecting  the  independence  as  well  as 
promoting and ensuring the accountability, efficiency and quality of work of the judiciary2. 
Candidate judges are selected by the Judicial Council and then proposed for election by the 
National  Assembly  (the  first  chamber  of  Parliament)3.  If  the  Judicial  Council  selects  a 
candidate  who  has  already  been  elected  to  judicial  office,  the  candidate  is  promoted  to  the 
new judicial position by the Council itself. However, a Supreme Court judge shall always be 
appointed/elected by the National Assembly. The State Prosecution, while being part of the 
executive power, is an independent  authority, with the main powers regarding the career of 
state  prosecutors  and  its  functioning  resting  with  the  State  Prosecutorial  Council  and  the 
Prosecutor General. The State Prosecutorial Council is an independent and autonomous state 
body that performs the tasks of self-governance of the State Prosecution and participates in 
ensuring the uniformity of prosecution and safeguarding the independence and autonomy of 
state prosecutors.  Slovenia participates  in  the European Public Prosecutor’s Office (EPPO). 
The Slovene Bar Association is  an autonomous  and independent  body.  It  is  responsible for 
supervising  the  professional  activities  of  lawyers  and  deciding  on  disciplinary  measures 
regarding its members4.  

Independence  

The level of perceived judicial independence in Slovenia continues to be average among 
both the general public and companies. Overall, 45% of the general population and 40% of 
companies perceive the level of independence of courts and judges to be ‘fairly or very good’ 
in  20245.  The  perceived  level  of  judicial  independence  among  the  general  public  has 

1   There are in total 60 first instance courts with one Social Court also dealing with social security cases. The 

Administrative Court has the status of a higher court. 

2   The primary responsibility of the Judicial Council is the selection of candidates for judicial offices. Under 
the  Constitution,  the  majority  of  members  of  the  Judicial  Council  are  judges,  elected  by  their  peers.  The 
remaining  five  members  are  representatives  of  other  legal  professions,  elected  by  the  National Assembly 
based on the nomination of the President of the Republic. The Judicial Council manages its own budget.  
3   Since the initial re-election of judges after the independence of Slovenia in 1990s, Parliament has rejected a 
candidate  judge  for  first  appointment  only  once.  It  should  be  noted  that  a  candidate  judge,  who  is  not 
appointed,  cannot  request  judicial  review  of  the  decision  of  Parliament,  which  has  no  obligation  to  state 
reasons when rejecting a proposed appointment. 

4   According  to  the  Constitution,  the  Bar  is  part  of  the  judiciary.  Disciplinary  Commissions  of 1st  and  of 2nd 
Instance,  each  consisting  of  16  lawyers  elected  for  3  years  by  the  assembly  of  the  Bar,  decide  (in  three-
member panels)  regarding  disciplinary  sanctions  at  first  instance  and  at  second  instance,  respectively. The 
Disciplinary  Court,  consisting  of  three  lawyers  elected  for 2  years by  the  assembly  of  the  Bar  and  of  two 
Supreme Court judges, decides on violations that could lead to a lawyer being disbarred. 

5   Figures 51 and 53, 2024 EU Justice Scoreboard, and 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%). 

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decreased in comparison with 2023 (53%), inverting a previous increasing trend, although it 
remains higher in comparison with 2020 (42%). The perceived level of judicial independence 
among  companies  remains  at  the  same  level  as  in  2023  (40%),  but  is  higher  than  in  2020 
(36%)6. 

Further  significant  progress  has  been  achieved  on  introducing  safeguards  for  judicial 
independence  and  autonomy  of prosecutors  in  parliamentary  inquiries.  The  2023  Rule 
of  Law  Report  recommended  Slovenia  to  ‘take  forward  the  process  to  ensure  that  rules  on 
parliamentary  inquiries  contain  adequate  safeguards  for  independence  of  judges  and  state 
prosecutors,  taking  into  account  European  standards  on  judicial  independence’7.  Following 
discussions in January 2024 between the Parliament Secretariat and the Ministry of Justice on 
the implementation of the Constitutional Court’s decisions8, on 19 April 2024the President of 
Parliament  submitted  draft  amendments  to  the  Parliamentary  Inquiries  Act  into  the 
parliamentary  procedure,  the  Government  supported  them  and  they  were  adopted  in 
Parliament  on  15  July  20249.  As  regards  the  envisaged  safeguards,  the  amendments,  as 
adapted in the legislative procedure, allow a request to the Constitutional Court to decide on 
the  constitutional  conformity  of  any  parliamentary  inquiry,  including  in  relation  to  judicial 
independence and autonomy  of prosecutors10. Until the decision of the Court, the proposed 
parliamentary  inquiry  could  not  be  established.  Considering  that  Parliament  adopted  the 
amendments  to  the  rules  on  parliamentary  inquiries,  further  significant  progress  has  been 
achieved regarding the recommendation made in the past reports. 

Draft amendments to the Judicial Council Act envisage, on the judiciary’s initiative, an 
overhaul  of  the  disciplinary  framework  for  judges.  The  2022  and  2023  Rule  of  Law 
Reports noted that on the judiciary’s initiative, amendments to the disciplinary framework for 
judges  and  to  the  provisions  on  elections  and  status  of  Judicial  Council  members  were  in 
preparation11. On 6 October 2023, the Ministry of Justice published draft amendments to the 
Judicial  Council  Act,  which  would  address  the  unconstitutionality  of  certain  provisions  on 

6   65% of the companies in Slovenia are either fairly or very confident that their investments are protected by 
the law and courts in the Member State. Only 18% 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. 

7   2023 and 2022 Rule of Law Reports, Country Chapter on the rule of law situation in Slovenia, p. 2. In the 
2023 Rule of Law Report, the Commission concluded that some progress was made in the implementation of 
the 2022 recommendation. 

8   Contribution from Parliament for the 2024 Rule of Law Report, p. 14. In January 2021, the Constitutional 
Court  found  the  Parliamentary  Inquiries  Act  and  the  Rules  of  Procedure  on  Parliamentary  Inquiry  to  be 
unconstitutional, insofar as they lack procedural safeguards for ensuring the independence of judges  when 
establishing a parliamentary inquiry.  Judgment of the Constitutional Court of 7 January 2021,  U-I-246/19-
41. In July 2021, the Constitutional Court found similar deficiencies in the rules in relation to safeguards for 
ensuring the independence of state prosecutors.  Judgment of the Constitutional Court of 8 July 2021,  U-I-
214/19. 

9   On  19  July  2024,  the  second  chamber  of  Parliament,  the  National  Council,  voted  the  amendments,  which 
requires the first chamber, the National Assembly, to vote again on the amendments, with absolute majority, 
before the amendments could enter into force. 

10   According  to  amendments,  such  a  request  could  either  be made  by  one  third of  all  deputies  (who  haven’t 
submitted the request for the parliamentary inquiry), Judicial Council, State Prosecutorial Council, Central 
Bank, Court of Audit, any municipality or the person who is being investigated. Proposed Articles 1.a and 
1.b., draft amendments to the Parliamentary Inquiries Act.  

11   2023 and 2022 Rule of Law Reports, Country Chapter on the rule of law situation in Slovenia, p. 8 and p. 4. 

4 

 
 
disciplinary  proceedings12  by  removing  the  Judicial  Council’s  power  to  initiate  disciplinary 
proceedings  regarding  judges13.  It  would  also  introduce  a  wider  reform  of  the  disciplinary 
framework, as requested by the judiciary14. The draft amendments also include more detailed 
provisions  on  withdrawal  and  recusal  with  the  aim  of  preventing  potential  conflicts  of 
interests  and  ensure  impartiality  of  Judicial  Council  members,  both  in  disciplinary  matters 
and judicial appointments15. Additionally, the draft amendments would provide for a register 
of  disciplinary  offences  and  would  introduce  clarifications  regarding  the  procedure  used  in 
disciplinary  matters16.  Finally,  the  amendments  would  provide  additional  guarantees, 
including judicial review, in the procedure for the election of judge-members of the Judicial 
Council17. Most of the comments  from  the Judicial  Council appear to  have been taken into 
account. However, the draft amendments do not follow the Council’s position to discontinue 
the  disciplinary  procedure  regarding  a  person  who  no  longer  holds  the  position  of  a  judge, 
and  to  keep  the  disciplinary  sanction  of  termination  of  a  judge’s  office18.  In  the  Judicial 
Council’s view, the draft amendments also contain overly strict requirements on withdrawal 
and  recusal  of  judge-members  of  the  Judicial  Council,  which  could  lead  to  non-judge 
members deciding on judicial appointments19. According to  the Supreme Court, the criteria 
for evaluating how the judges perform the judicial service and the disciplinary responsibility 

12   In 2021, the Constitutional Court found that the Judicial Council should not have the possibility of initiating 
disciplinary  proceedings  against  a  judge  in  a  situation  where  in  the  Disciplinary  Court,  appointed  by  the 
Council  itself,  also  members  of  the  Council  are  participating,  Judgment  of  the  Constitutional  Court  of  14 
October 2021,  U-I-445/18-13, para. 28. To prevent an unconstitutional situation, the  Judicial Council after 
the judgment decided not to start any disciplinary proceedings on its own initiative, until the amendments are 
adopted  resolving  the  issue.  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law  situation  in 
Slovenia,  p.  8.  For  a  comparative  overview  of  authorities  deciding  on  disciplinary  sanctions  regarding 
judges, see Figure 49, 2020 EU Justice Scoreboard. 

13   Proposed  new  article  45  of  the  Judicial  Council Act. According  to  the  current  provisions  of  the  Judicial 
Council  Act,  disciplinary  proceedings  could  be  initiated  either  by  the  Judicial  Council,  court  president, 
president of a higher court, Supreme Court President or the Minister of Justice. 

14   In  its  analysis  of  March  2021,  the  Judicial  Council  identified,  amongst  others,  the  need  for  establishing  a 
special disciplinary procedure instead of using criminal procedure, updating the list of disciplinary offences, 
revising the right of the Judicial Council to initiate disciplinary proceedings, revising disciplinary sanctions 
to allow for more proportionality, and clarifying the length of suspension of a judge. 2023 and 2021 Rule of 
Law Reports, Country Chapter on the rule of law situation in Slovenia, p. 8 and p. 5, respectively. 

15   With the same objective of ensuring impartiality and responding to Judicial Council’s suggestion, the draft 
amendments would increase the number of investigators, from one to three judges (either Supreme Court or 
also Higher Court judges), in charge of formal disciplinary proceedings regarding judges, who would remain 
to the be appointed by the Judicial Council. Proposed new or amended articles 30, 30.a, 38, 39, 40, 40.a and 
41 of the Judicial Council Act. For a comparative overview of investigators in charge of formal disciplinary 
proceedings regarding judges see Figure 50, 2020 EU Justice Scoreboard. 

16   Offences would appear in the register until their erasure according to the existing provisions. Proposed new 

or amended articles 40.a, 44, 44.a and 45 of the Judicial Council Act. 

17   Proposed new or amended articles 19, 20, 21, 21.a, 21.b, 22, 34 and 36 of the Judicial Council Act. 
18   The  Judicial  Council  also  proposed  that  the  Senate,  which  decides  on  legal  remedies  against  disciplinary 
decisions,  would  consist  not  only  of  judges,  but  also  external  legal  experts.  Written  contribution  received 
from the  Judicial Council in the context of the country visit  to Slovenia. The list of disciplinary sanctions 
would be amended through the draft new Judicial Service Act. 

19   According to the Judicial Council, this relates to the requirement for withdrawal in case a judge-member of 
the Council sits in a court whose president gives an opinion in the proceedings. According to the Council, in 
practice, this could lead to a situation where (Supreme Court) judges would need to withdraw from decision-
making and therefore the majority would automatically be obtained by non-judge members of the Judicial 
Council. It is to be noted that the current law, as well as proposed constitutional changes, provide that the 
judicial  appointment  decisions  have  to  be  made  with  two  third  majority  of  all  Judicial  Council  members. 
Written contribution received from the Judicial Council in the context of the country visit to Slovenia. 

5 

 
 
of  judges  should  be  further  defined  as  to  exclude  overlapping  of  the  two20.  The  reform  of 
disciplinary  proceedings  appears  to  be  in  line  with  EU  law  and  takes  also  into  account 
Council of Europe recommendations21. 

Some  progress  was  achieved  on  ensuring  that  the  reform  of  judicial  appointments 
contains  adequate  safeguards  for  judicial  independence,  as  the  previously  envisaged 
probationary  period  without  prescribed  guarantees  was  abandoned.  The  2023  Rule  of 
Law  Report  recommended  Slovenia  to  ‘ensure  that  the  reform  of  judicial  appointments 
contains  adequate  safeguards  for  judicial  independence,  taking  into  account  European 
standards on judicial independence’22. In autumn 2023, Parliament continued the process of 
constitutional  revision  regarding  appointment  of  judges  with  the  aim  of  transferring  the 
power to appoint first-time judges from Parliament to the President of the Republic23. After 
discussions and opposition from the representatives of the judiciary, the idea of introducing a 
probationary period without any specific prescribed guarantees (either in the Constitution or 
laws) was abandoned. Based on the guidance adopted by Parliament, in November 2023, the 
Expert group on judicial appointment prepared draft amendments to the Constitution, which 
are  to  be  discussed  before  the  Constitutional  Commission24.  As  for  other  safeguards  on 
judicial  independence,  neither  the  draft  Constitutional  amendments  nor  the  legislation25 
specify whether the President of the Republic would be obliged to follow the proposal of the 
Judicial Council and appoint the proposed candidate as a judge, nor is it made clear whether 
the  President’s  decision  not  to  appoint  a  candidate  would  need  to  be  reasoned  or  would  be 
subject to judicial review26. As noted in the 2023 Rule of Law Report, the Ministry of Justice 
stated that the President of the Republic should be bound by the Judicial Council’s proposal, 
and  the  Judicial  Council  expressed  the  view  that  the  President’s  decisions  should  be  both 
reasoned  and  subject  to  judicial  review27.  It  is  important  that  the  reform  of  judicial 
appointments  guarantees  judicial  independence,  taking  into  account  Council  of  Europe 
recommendations  that  provide  that  the  Judicial  Council  should  be  authorised  to  make 
recommendations on a candidate judge which the appointing authority follows in practice28. 

20   Contribution from the Supreme Court for the 2024 Rule of Law Report, p. 1. 
21   2022 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 4, footnote 8. 
22   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 2.  
23   In accordance with the parliamentary Rules of Procedure, the Constitutional Commission on 16 November 
2022 first voted on starting the constitutional revision. On 19 October 2024, Parliament voted on starting the 
procedure  and  gave  guidance  to  the  Constitutional  Commission  on  the  drafting  of  the  constitutional 
amendments.  In  the  next  stage,  after  a  new  round  of  discussions  and  drafting  in  the  Constitutional 
Commission,  Parliament  will  need  to  approve  the  amendments  to  the  Constitution  with  two  third  of  all 
members (at least 60, out of 90 members in total). 30 members of Parliament can request a referendum. 
24   The draft amendments also provide that the Judicial Council would need to approve a candidate judge with 
two-third majority of its members. Expert group on judicial appointments, draft amendments to Articles 129, 
130, 131, 132 and 134 of the Constitution, 6 November 2023. 

25   There are no such provisions in the draft amendments to the Judicial Council Act, the draft new Courts Act 

or the draft new Judicial Service Act, launched in public consultation in October 2023. 

26   The only reference to this issue was made by the Expert group on judicial appointments in the explanations 
to the draft amendment to Article 130 of the Constitution, which states that ‘the appointment [of judges] will 
no longer be a discretionary act of a political body [n.b.: Parliament], as the President of the Republic will 
have an obligation to follow the proposal [for appointment] of the Judicial Council’. Expert group on judicial 
appointments, draft amendments to Articles 129-132 and 134 of the Constitution, 6 November 2023, p. 5. 

27   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 7. 
28   ‘47. Where the constitutional or other legal provisions prescribe that the head of state, the government or the 
legislative  power  take  decisions  concerning  the  selection  and  career  of  judges,  an  independent  and 
competent  authority  drawn  in  substantial  part  from  the  judiciary  […]  should  be  authorised  to  make 

6 

 
 
 
In parallel, on 9 October 2023, the Ministry of Justice launched the public consultation on the 
new Judicial Service Act and the new Courts Act, which would transfer the power to appoint 
Supreme  Court  judges  and  the  Supreme  Court  President  from  Parliament  to  the  Judicial 
Council29. In both reforms, the Judicial Council would retain its power to select and propose 
the  candidates  for  first-time  judges,  Supreme  Court  judges  and  Supreme  Court  President. 
However, the Supreme Court expressed its opposition to the proposal that the Supreme Court 
President  would  be  appointed  by  the  Judicial  Council,  instead  of  by  the  Supreme  Court 
judges themselves30. Parliament’s guidance also envisaged a change in the composition of the 
Judicial Council, from currently 11 to 15 members, where 8 would be judge-members elected 
by their peers (currently 6) and 7 would be non-judge members elected by Parliament among 
university professors of law, lawyers, and other distinguished jurists (currently 5 members are 
elected by Parliament on a proposal from the President of the Republic)31. Representatives of 
the  judiciary  have  opposed  such  an  amendment  as  unnecessarily  cumbersome  for  the 
decision-making in the Judicial Council and raised doubts regarding the process for selection 
of  non-judge  members32.  Considering  that  the  idea  of  a  probationary  period  for  judges 
without  explicit  safeguards  has  been  abandoned,  while  other  safeguards  for  judicial 
independence  are  outstanding,  there  has  been  some  progress  on  the  implementation  of  the 
recommendation made in the 2023 Rule of Law Report. 

Quality  

The  Supreme  Court  is  prioritising  further  expansion  of  the  electronic  communication 
tools for court users. Courts continue to utilise advanced case management tools. Data in the 
2024 EU Justice Scoreboard show that considerable room for improvement remains, notably 

recommendations  or  express  opinions  which  the  relevant  appointing  authority  follows  in  practice.’ 
Recommendation  CM/Rec(2010)12  of  the  Committee  of Ministers  of  the  Council  of  Europe,  para.  47. As 
regards the tenure and irremovability, see paras. 49-51 of the same Recommendation. 

29   Draft  new  Judicial  Service Act  envisages  that  Supreme  Court  judges  would  be  appointed  by  the  Judicial 
Council (if the candidate is already a judge). Parliament would appoint candidates for Supreme Court judges, 
who are not yet judges (until the amendments to the Constitution would transfer this power to the Judicial 
Council). Draft new Courts Act envisages that the President of the Supreme Court would be appointed by the 
Judicial Council, on prior opinion of the Minister of Justice and the Supreme Court plenary session.  

30   Input from the Supreme Court for the 2024 Rule of Law Report, p. 1. 
31   Previous  idea  to  count  the  Supreme  Court  President,  who  would  be  an  ex  officio  member  of  the  Judicial 
Council,  as  a  representative  of  the  judges,  was  abandoned  after  opposition  from  the  Judicial  Council 
expressed before the Constitutional Commission, where compliance with European standards was raised.  
32   According  to  the  Supreme  Court,  the  current  proposal  to  change  the  composition  of  the  Judicial  Council 
does  not  contain  sufficient  safeguards  against  politicisation.  While  the  recommendation  on  a  two  third 
majority vote for the appointment of judges is observed, the other four safeguards envisaged by the Venice 
Commission are not,  namely, firstly: a guarantee  that the selection of non-judge members will be an open 
and transparent process (also with a clear determination of who nominates them), secondly: a stipulation that 
Parliament  representatives  may  not  be  Judicial  Council  members,  thirdly:  a  stipulation  that  non-judge 
members  may  not  be  politically  active  and  fourthly,  that  safeguards  in  the  nomination  process  are  as 
important as safeguards in the election process of non-judge members of the Judicial Council. The Supreme 
Court therefore proposed to the Constitutional Commission to request the Venice Commission's opinion on 
the appropriateness of the proposed amendments to Article 131. Input from the Supreme Court for the 2024 
Rule  of  Law  Report,  p.  6. According  to  the  Judicial  Council,  increasing  the  number  of  Council  members 
from 11  to  15  would  weaken  the  operational  efficiency of  the  work  of  the  Council,  and  would  impair  the 
effectiveness  of  discussions.  Furthermore,  according  to  the  Judicial  Council,  the  election  of  non-judge 
Council members by Parliament with a two third majority would lead to a marked politisation of the process 
as  the  appointment  of  those  members  would  only  be  subject  to  coordination  between  political  parties. 
Written contribution from the Judicial Council in the context of country visit to Slovenia.  

7 

 
 
regarding  electronic  communication  tools  in  the  State  Prosecution,  and  before  courts  in 
criminal,  civil  and  administrative  cases33.  On  8  August  2023,  the  Supreme  Court  President 
issued a decree which prioritises further expansion of the electronic communication tools for 
court users. Among others, the policy priorities are to improve the possibilities to initiate and 
follow  proceedings  online,  to  receive  court  documents,  and  to  expand  the  online  access  to 
published  judgments,  which  remains  limited  for  first  instance  courts34.  In  January  2024,  e-
communication in family matters and inheritance matters became possible for all participants 
in court proceedings. Full transition to e-communication in administrative, criminal, civil and 
commercial cases for all courts and participants, and between courts, parties and lawyers in 
criminal  cases  is  ongoing35.  The  State  Prosecution’s  digital  integration  with  the  judicial 
system  does  not  solely  depend  on  securing  funds  for  upgrading  prosecution’s  case 
management  system  but  also  on  establishing  relevant  operational  procedures  in  the  State 
Prosecutor's  Office36.  Under  the  Recovery  and  Resilience  Plan,  an  investment  in  new  tools 
for  the  support  of  court  management  was  proposed  and  in  2023,  the  Supreme  Court  began 
with the preparation of investment documentation for this project37. 

Some  progress  was  made  on  increasing  the  level  of  remuneration  of  judges  and  state 
prosecutors, largely unchanged since 2012, as Government proposed a partial increase 
and  Constitutional  Court  prescribed  how  its  judgment  should  be  implemented.  The 
2023  Rule  of  Law  Report  recommended  Slovenia  to  ‘take  measures  to  increase  the 
remuneration  of  judges  and  state  prosecutors,  taking  into  account  European  standards  on 
resources and remuneration for the justice system’38. On 3 January 2024, the deadline set by 
the  Constitutional  Court  to  implement  its  June  2023  judgment  declaring  the  judges’  salary 
system  unconstitutional  expired39.  In  January  2024,  the  failure  to  implement  the  June  2023 

33   Figures  46,  47  and  48,  2024  EU  Justice  Scoreboard.  Currently,  the  possibility  of  e-communication 
(electronic  filing,  electronic  service)  is  provided  to  enforcement  agents,  notaries,  lawyers,  insolvency 
administrators,  as  well  as  parties  and  other  participants  in  court  proceedings  via  the  courts'  web  portal 
eSodstvo (a digital certificate is required) in civil enforcement cases, land registry cases, insolvency cases 
and in family cases. Input from the Supreme Court for the 2024 Rule of Law Report, p. 3. 

34   Figure 49, 2024 EU Justice Scoreboard. The Decree sets June 2025 deadline to implement the project.  
35   From June 2024, requests for extraordinary review in civil cases before the Supreme Court can be submitted 
digitally. Written  contribution  from  the  Supreme  Court  in  the  context  of  the  country  visit  to  Slovenia  and 
input from the Supreme Court for the 2024 Rule of Law Report, pp. 3-4.  

36   Among  other  improvements,  the  information  system  for  centralised,  long-term  storage  of  digital  content 
(Archeía) is being connected to the case management system for civil enforcement cases, and will in future 
be connected with the case  management systems for misdemeanour, insolvency and criminal cases. In the 
scope  of  the  Slovenia's  RRP,  investments  in  the  digital  tools  for  court  participants  and  about  court 
proceedings  (eSodišče)  have  been  proposed.  In  2023,  the  Supreme  Court  began  with  the  preparation  of 
investment documentation. Input from the Supreme Court for the 2024 Rule of Law Report, p. 4. 

37   Input  from  the  Supreme  Court  for  the  2024  Rule  of  Law  Report,  p.  5.  In  line  with  Target  #105  of  the 
Recovery and Resilience Plan, Slovenia  should develop or upgrade a total of 11 IT systems for use in the 
judicial system by mid-2026. The investment Digitalisation in the field of justice is part of the component on 
Digital transformation of the public sector and public administration. 

38   The salaries of judges and state prosecutors have been largely unchanged in nominal terms since 2012, while 
the salaries of civil servants and functionaries (ministers, members of Parliament) in the legislative and the 
executive  branches  have  been  increased.  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law 
situation in Slovenia, p. 2, and p. 9.  

39   On 30 June 2023, the Constitutional Court, upon a request from the Judicial Council, declared the judges’ 
salaries system unconstitutional and contrary to the principle of judicial independence due to the disrespect 
of  the  constitutional  requirement  of  their  stability.  The  Court  also  considered  the  imbalance  of  the  salary 
grades of the judiciary as compared to those of the legislative and the executive branches and the delay in 
judges’ salaries increase as compared to the increase of the average salary in Slovenia. The Court declared 

8 

 
 
 
judgment led to a two-week strike of judges and a one-day strike of prosecutors (repeated in 
mid-March),  and  since  February,  every  first  Wednesday  in  the  month,  a  one-hour  warning 
protest  has  been  conducted  in  courts40.  The  Government  informed  that  it  would  implement 
the June 2023 judgment of the Constitutional Court promptly, in the framework of the public 
sector  salaries  system,  albeit  with  a  delay41.  Judicial  authorities  and  the  representatives  of 
judges and state prosecutors have raised serious  concerns  regarding their financial situation 
and  the  non-implementation  of  the  Constitutional  Court  judgment42.  The  representative 
organisations  of  European  judges  and  prosecutors  agreed  with  these  concerns  and 
recommended Slovenia to take all necessary measures to remedy the situation43. Until 10 July 
2024,  468  judges  submitted  requests  to  the  State  Attorney’s  Office  for  mediation  with  the 
State  regarding  their  salaries,  representing  a  first  step  in  a  compensation  claim  before 
courts44.  Following  the  appointment  of  a  new  Minister  of  Justice  in  early  March,  the 
negotiations on remuneration resumed and on 24 May 2024 the Government submitted into 
parliamentary procedure a special law for partially increasing the salaries of judges and state 
prosecutors.  On  13  June  2024,  the  Constitutional  Court  published,  on  its  own  motion,  a 
supplementary 
judgment  on 
unconstitutionality of salaries should be implemented45. In particular, the Court mandated the 

it  specified  how 

its  previous 

in  which 

judgment 

the provision on the annual adjustment of judges’ salaries unconstitutional, as it does not guarantee that the 
salaries  would  actually  be  adjusted.  Judgment  of  the  Constitutional  Court  of  1  June  2023,  U-I-772/21-37 
(published on 30 June 2023). 

40   Supreme  Court,  Press  release:  Notice  to  court  users  on  the  ending  of  the  warning  protest  of  judges,  24 
January 2024; Supreme Court, Press release: Notice to court users on the work of courts during protest of 
judges, 6 February 2024.  

41   According to the Government, the Ministry of Public Administration and the Ministry of Justice have been 
working continuously on harmonising the salaries of judicial officials to prevent a significant decline in real 
value of judges' salaries in relation to the inflation in the compared period (1 June 2012 until May 2023), and 
to  ensure  their  alignment  with  those of  functionaries  in  executive  and  legislative  branches  of government. 
Input from Slovenia for the 2024 Rule of Law Report, p. 1. The general negotiations on salaries of all public 
officials in the public sector are planned to be concluded in the course of 2024.  

42   Letters  of  28  December  2023,  15  January  2024  and  22  January  2024  from  the  Judicial  Council  to  the 
Commission;  Supreme  Court,  Press  release:  Supreme  Court  judges  support  the  efforts  to  implement  the 
Constitutional Court judgment, 7 February 2024; Association of Slovenian Judges, Protest declaration of the 
Slovenian  judges,  4  January  2024; Association  of  State  Prosecutors  of  Slovenia,  Letter  to  Commissioner 
Reynders,  5  January  2024;  Association  of  Slovenian  Judges,  Letter  to  the  European  Commission:  The 
violation of material independence of Slovenian judges may hinder the European elections 2024, 14 January 
2024. Information received from the Supreme Court, Judicial Council, Association of Slovenian Judges, and 
the Supreme State Prosecution Office in the context of the country visit to Slovenia. State Attorney’s Office, 
Press release: Support to judges and state prosecutors, 4 January 2024. 

43   Consultative  Council  of  European  Judges  (CCJE),  Opinion  of  the  CCJE  Bureau  following  a  Protest 
Declaration  of  the  Slovenian  Association  of  Judges  concerning  the  failure  to  enforce  a  decision  of  the 
Constitutional  Court  of  Slovenia  aimed  at  remedying  the  established  unconstitutionalities  regarding 
substantial  differences  between  the  salaries  of  judges  and  other  public  officials,  16  February  2024; 
Consultative Council of European Prosecutors (CCPE), Opinion of the CCPE Bureau following a letter of 
the  Deputy  Prosecutor  General  and  Temporary  Head  of  the  State  Prosecutor's  Office  of  Slovenia,  […] 
regarding  significant  disproportions  between  the  salary  grades  of  judges'  positions  compared  to  the  salary 
grades  of  executive  and  legislative  branch  functions,  18  March  2024.  European  Association  of  Judges, 
Resolution  on  the  independence  of  judges  in  Slovenia,  26  April  2024,  which  the  European  Network  of 
Councils for the Judiciary endorsed on 12 June 2024. 

44   Each  judge  calculated  the  compensation  based  on  the  Constitutional  Court  judgment  on  remuneration, 
ranging  from  three  to  five  years  back.  Information  received  from  the  State  Attorney’s  Office  and  the 
Association of Judges in the context of the country visit to Slovenia.  

45   Judgment of the Constitutional Court of 30 May 2024, U-I-8/24-23 (published on 13 June 2024). While the 
Judicial Council on 16 January 2024 submitted a new request to the Constitutional Court and proposed that 

9 

 
 
 
Government and Parliament to adjust the 2012 salary grades to the inflation, using the data of 
the  Statistical  Office,  and  start  paying  the  adjusted  salaries  from  August  2024  onwards. 
Whereas  first  concrete  measures  were  proposed  to  address  the  remuneration  of  judges  and 
state  prosecutors  there  has  therefore  been  some  progress  on  the  implementation  of  the 
recommendation made in the 2023 Rule of Law Report.  

Amendments  on  a  judicial  map  reform  are  being  prepared,  which  would  merge  first 
instance District and Local Courts. The 2020 and 2023 Rule of Law Reports noted that the 
split between the first instance courts has long been identified as affecting the efficiency of 
the  courts,  and  the  previous  attempts,  in  2019  and  2020,  to  conclude  this  reform  have  not 
been successful46. On 9 October 2023, the Ministry of Justice launched a public consultation 
on  a  new  Courts  Act  which  would  merge  District  and  Local  Courts  (and  keep  11  District 
Courts only), while retaining the geographical distribution of court units47. The explanatory 
memorandum listed the inefficient management of the judicial map, the limited specialisation 
of  judges,  uneven  workload,  inconsistent  case  law  and  high  proportion  of  small  courts  as 
some  of  the  reasons  for  the  proposed  reform48.  The  planned  introduction  of  a  unified  first 
instance judge/court would, according to the Supreme Court, significantly contribute to even 
out  the  workload  of  judges  and  enable  more  efficient  court  operations49.  However,  the 
Judicial Council expressed its reservations about the added value of the planned judicial map 
reform50. 

the  Court  itself  determines  the  manner  of  execution  of  its  June  2023  judgment,  the  Court  found  that  the 
Council  lacks  procedural  grounds  for  its  request  but  issued  a  supplementary  judgment  on  its  own  motion 
(sua  sponte).  Written  contribution  received  from  the  Judicial  Council  in  the  context  of  country  visit  to 
Slovenia. 

46   Currently,  the  court  system  has  55  first  instance  courts,  with  44  Local  Courts  dealing  primarily  with  low 
(financial) value civil litigious and non-litigious cases, and certain criminal cases. It also counts 11 District 
Courts  dealing primarily  with  high-value  civil  cases  and  commercial  cases  among  legal  persons,  and  with 
certain criminal cases. 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 
9.  As  a  partial  remedy,  the  2009  and  2015  reforms  brought  Local  Courts  under  the  stronger  control  of 
District  Courts  in  order  to  even-out  the  caseload  and  reduce  jurisdictional  conflicts.  2020  Rule  of  Law 
Report, Country Chapter on the rule of law situation in Slovenia, p. 5. 

47   Information received from the Ministry of Justice in the context of the country visit to Slovenia. The new 
Courts  Act  would  give  the  new  District  Court  Presidents  the  power  to  submit  an  initiative  for  the 
establishment  or  abolition  of  an  external  unit  to  the  president  of  the  higher  court,  who  shall  formulate  a 
reasoned proposal, considering access to justice, caseload, and geographical  location. The  President of the 
Supreme  Court  shall  decide  on  the  proposal,  after  obtaining  the  prior  opinion  of  the  Minister  of  Justice.. 
Among the 11 District Courts there would be a single Ljubljana District Court, to benefit from flexibility in 
court management in the jurisdiction that receives the most cases. The new Courts Act would also slightly 
adapt the judicial map regarding Higher (appeal) Courts, to relieve the caseload from the Ljubljana Higher 
Court.  

48   Draft new Courts Act, pp. 8-9. 
49   According to the Supreme Court, current judicial map together with principles of immobility of judges pose 
a significant constraint on efficiency of court management and work of courts. Some of calls for new judges 
can  be  attributed  to  the  current  (inefficient)  division  to  local  and  district  courts  within  court  districts. The 
planned introduction of a unified first instance judge/court would provide wider »pools« of human resources 
and therefore significantly contribute to evening-out the workload of judges and enable more efficient court 
operations,  including  possibilities  to  effectively  address  issues  with  sudden  absence  of  judges(s)  or 
substantial increase in case flow in specific legal area(s). Contribution from the Supreme Court for the 2024 
Rule  of  Law  Report,  p.  1.  Supreme  Court,  Press  release:  The  judiciary  needs  a  single  judge  more  than 
changes to the Constitution regarding the composition of the Judicial Council, 30 November 2023. 

50   Written contribution from the Judicial Council in the context of country visit to Slovenia. 

10 

 
 
Efficiency 

The efficiency gains in past years have slowed down, as backlogs slightly increased and 
length of trials remained a challenge particularly in money laundering and corruption 
cases. According to data in the 2024 EU Justice Scoreboard, based on 2022 comparative data, 
the justice system generally continued to function efficiently, except in administrative cases, 
where  courts  continued  to  experience  challenges  in  managing  the  caseload51.  In  2023, 
according to  the latest  Supreme Court data,  in  total,  all  courts  received 1% more cases and 
resolved  1%  fewer  cases  than  in  2022,  which  reversed  the  previous  positive  trend  of  many 
years  and  slightly  increased,  by  2%,  the  total  backlog  of  cases  at  the  end  of  202352.  This 
slight decrease in efficiency in 2023 could be seen in most courts, except in commercial and 
local  courts.  In  2023,  the  average  length  of  proceedings  slightly  increased  both  at  first  and 
second  instance  courts53.  The  time  needed  for  the  first  instance  courts  to  conduct  the  first 
hearing further increased in nearly all type of cases, taking up to 21 months in civil and 11 
months  in  criminal  cases54.  At  first  instance  criminal  courts,  the  average  length  in  2022  in 
more complex money laundering offences decreased to 631 days (1 043 days in 2021) which 
was the second longest in the EU and was 889 days in corruption offences (793 days in 2021) 
– the longest in the EU55. The increasing caseload in administrative courts (by 6% in 2023, 
compared to 2022) has led to a further increase in pending cases (by 6% end 2023), despite a 
further 4% increase in resolved cases56. The amendments to the Administrative Disputes Act, 
adopted  in  April  2023,  which  allow  simpler  administrative  cases  to  be  decided  by  a  single 
judge57,  and  which  increased  procedural  discipline  and  introduced  new  incentives  for 
reaching a court settlement, are yet to show their full effect58.  

The  Supreme  Court  is  working  on  proposals  to  address  the  decreasing  number  of 
resolved cases in courts. In recent years, the overall number of resolved cases in courts has 
been decreasing, while the caseload remained stable59. In December 2023, the Supreme Court 

51   Figures 5 – 15, 2024 EU Justice Scoreboard.  
52   Written contribution from the Supreme Court in the context of the country visit to Slovenia. 
53   The average length of proceedings at first instance courts further increased  to above 2 years in large value 
(23,9  months  in  2022)  and  to  16,7  months  in  small  value  litigious  civil  cases  (16  months  in  2022),  and 
remained  around  13  months  in  litigious  commercial  cases.  In  criminal  cases,  the  average  length  remained 
stable  in  lesser  offences  (12  months)  and  further  increased  to  21,2  months  in  more  serious  offences  (18,5 
months in 2022). In appeal, the average length is much shorter, but also increased further in 2023, namely to 
3,2 months in civil (2,1 in 2022) and to 3,4 months in commercial cases (2,9 in 2022). Written contribution 
from the Supreme Court in the context of the country visit to Slovenia. 

54   Time from the start of court proceedings until the first hearing further increased to 21 months in  high-value 
civil litigious cases (19,3 in 2022), 11,2 months in more serious criminal offences (10,4 in 2022) and to 18 
months in low-value litigious civil cases (16,9 months in 2022). It stagnated at 8,3 months in lesser criminal 
offences. Written contribution from the Supreme Court in the context of the country visit to Slovenia. 

55   Figures 22 and 23, 2024 EU Justice Scoreboard. 
56   Written contribution from the Supreme Court in the context of the country visit to Slovenia. 
57   Instead of a panel of judges as is currently the case. 2023 Rule of Law Report, Country Chapter on the rule 

of law situation in Slovenia, p. 11. 

58   The Supreme Court designated the administrative judiciary as a priority area in the Opening of the Judicial 
Year  2023.  The  Supreme  Court  noted  a  tendency  of  the  Government  to  expand  the  jurisdiction  of  the 
judiciary in the administrative field and to omit the administrative appeal by higher administrative bodies. 
Input from the Supreme Court for the 2024 Rule of Law Report, p. 6. 

59   In total, the courts resolved around 814 000 cases in 2021, 799 000 cases in 2022 and 794 000 cases in 2023, 
while caseload remained stable around 800 000. Written contribution from the Supreme Court in the context 
of country visit to Slovenia.  

11 

 
 
President appointed a new working group to propose measures to ensure that the number of 
resolved cases in courts remains at the level of previous years or increases60. Additionally, in 
2023,  the  project  group  on  timeframes  at  the  Supreme  Court  prepared  a  proposal  that 
determines the timeframes for additional types of court proceedings, so that that they are now 
set for most court proceedings at all instances61. In 2023, activities have been undertaken to 
unburden  the  District  Court  of  Ljubljana  (the  largest  first  instance  district  court)  of  its 
workload in the criminal law area62.  

II. 

ANTI-CORRUPTION FRAMEWORK  

The main law setting up the institutional and legislative framework to prevent corruption in 
Slovenia  is  the  Integrity  and  Prevention  of  Corruption  Act.  The  Commission  for  the 
Prevention  of  Corruption  (CPC)  is  an  autonomous  and  independent  state  body,  responsible 
for  the  prevention  of  corruption  through  administrative  oversight  of  rules  on  integrity  and 
conflicts  of  interests.  It  cooperates  regularly  with  the  police  and  the State  Prosecution.  The 
National Bureau of Investigation is specialised in detecting and investigating serious crimes, 
including  corruption.  The  Specialised  State  Prosecution  Office  is  responsible  for  the 
prosecution of corruption offences and directs the work of the police. The National Review 
Commission for Public Procurement is an independent and autonomous body that decides on 
the  legality  of  the  awarding  of  public  contracts  and  can  refer  potential  illegal  acts  to  the 
police and the State Prosecution. The Court of Audit is the highest independent supervisory 
body for all public spending in Slovenia, and reviews political party finances. 

The perception among experts and business executives is that the level of corruption in 
the  public  sector  remains  relatively  high.  In  the  2023  Corruption  Perceptions  Index  by 
Transparency  International,  Slovenia  scores  56/100  and  ranks  17th  in  the  EU  and  42nd 
globally63. This perception has been deteriorating over the past 5 years64. The 2024 Special 
Eurobarometer on Corruption shows that 95% of respondents consider corruption widespread 
in  their  country  (EU  average  68%)  and  44%  of  respondents  feel  personally  affected  by 

60   Input  from  the  Supreme  Court  for  the  2024  Rule  of  Law  Report,  p.  5. This  working  group  continued  the 
work of the previous working group, mentioned in the 2023 Rule of Law  Report,  Country Chapter on the 
rule of law situation in Slovenia, pp. 11-12.  

61   The timeframes for the 2024 have been adopted by the President of the Supreme Court after obtaining the 
prior consent of the Ministry of Justice. Input from the Supreme Court for the 2024 Rule of Law Report, p. 
5. 

62   Measures at the court level included the preparation of the programme for resolving of older criminal cases, 
organisational  measures  to  even  out  the  pending  cases,  while  at  the  level  of  the  Supreme  Court/judiciary, 
meetings have been held with relevant courts and the Judicial Council to discuss the problems and possible 
solutions, analysis of the caseload and human resources in criminal justice for all district courts was made 
(to assess the possibility of redistribution of pending cases to other, less burdened courts), additional (eight) 
judicial  posts  for  the  District  Court  of  Ljubljana  were  approved  along  with  assistance  from  other  courts. 
Input from the Supreme Court for the 2024 Rule of Law Report, p. 7. 

63   Transparency  International  (2024),  ‘Corruption  Perceptions  Index  2023’,  pp.2-3.  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). 

64   In 2019, the score was 60, while in 2023 the score is 56. The score significantly increases/decreases when it 
changes  more  than  five  points;  improves/deteriorates  (changes  between  4-5  points);  is  relatively  stable 
(changes from 1-3 points) in the last 5 years. 

12 

 
 
corruption in their daily lives (EU average 27%)65. As regards businesses, 83% of companies 
consider that corruption is widespread (EU average 65%) and 35% consider that corruption is 
a problem when doing business (EU average 36%)66. Furthermore, 17% of respondents find 
that  there  are  enough  successful  prosecutions  to  deter  people  from  corrupt  practices  (EU 
average  32%)67,  while  15%  of  companies  believe  that  people  and  businesses  caught  for 
bribing a senior official are appropriately punished (EU average 31%)68. 

Some  further  progress  has  been  made  regarding  the  adoption  of  an  anti-corruption 
strategy and action plan. The 2023 Rule of Law Report recommended Slovenia to  ‘adopt 
the new anti-corruption strategy and action plan with concrete measures and a timeframe for 
their  implementation  […]’69.  Throughout  2022  and  2023,  the  CPC  conducted  a  series  of 
inter-institutional  discussions  and  consultations  with  civil  society  organisations  and  other 
stakeholders70.  On  12  December  2023,  the  CPC  transmitted  the  draft  ‘Resolution  on  the 
Prevention  of  Corruption’  to  the  Government  for  review71.  On  16  November  2023, 
Parliament  adopted  a  Recommendation  to  the  Government  on  the  fight  against  corruption, 
which, among others, called on the Government to swiftly adopt the draft Resolution72. Inter-
departmental  coordination  was  concluded  by  the  end  of  April  2024.  As  the  results  are  still 
being assessed, the Government has not yet transmitted the draft Resolution to Parliament for 
its consideration and final adoption73. The CPC has already begun drafting the corresponding 
‘Action  Plan  for  the  Implementation  of  the  Resolution’74,  with  concrete  measures  and  a 
timeframe for their implementation, which it must adopt within three months of Parliament’s 
adoption  of  the  Resolution75.  On  16  May  2024,  the  Government  presented  the  second  joint 
interim  implementation  report  on  the  2023-2026  ‘Government  Programme  to  Strengthen 
Integrity and Transparency in the Public Sector’ covering the period 1 September 2023 to 29 

65   Special Eurobarometer 548 on Citizens’ attitudes towards corruption in the EU (2024). The Eurobarometer 
data  on  citizens’  corruption  perception  and  experience  is  updated  every  year.  The  previous  data  set  is  the 
Special Eurobarometer 534 (2023). 

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

67  Special Eurobarometer 548 on Citizens’ attitudes towards corruption in the EU (2024).  
68   Flash Eurobarometer 543on Businesses’ attitudes towards corruption in the EU (2024).  
69   2023  and  2022  Rule  of  Law  Reports,  Country  Chapter  on the  rule  of  law  situation  in  Slovenia,  p.  2. The 

2023 Report found that some progress was made in implementing the 2022 recommendation. 

70   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 13, found that some 
progress had been achieved as regards the adoption and implementation of the anti-corruption strategy.  
71   Input from Slovenia for the 2024 Rule of Law Report, p. 7 and information received from the Ministry of 

Justice, the CPC and the Parliament Secretariat in the context of the country visit to Slovenia.  

72   Parliament, Recommendation to the Government of the Republic of Slovenia on the Fight against Corruption 
in the Republic of Slovenia, 16 November 2023. In the Recommendation, Parliament asked the Government 
– in view of increasing corruption – to conduct a thorough analysis of the laws and implementing regulations 
governing corruption prevention, integrity, transparency, and criminal law and, if necessary, make proposals 
for legislative amendments. Input from Parliament for the 2024 Rule of Law Report, p. 17.  

73   Amendments to the Resolution are still possible under normal parliamentary procedures.  
74   Information received from the CPC in the context of the country visit to Slovenia.  
75   Information received from the Ministry of Public Administration and the CPC in the context of the country 
visit  to  Slovenia.  See  also  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law  situation  in 
Slovenia,  p.  13.  Transparency  International  Slovenia  regretted  the  delay  and  called  on  decision-makers  to 
allow for a public debate  on the revised resolution and a  swift adoption. See Corruption Perception Index 
2023, 'Once again without progress in the field of anti-corruption in Slovenia. 

13 

 
 
February 202476. Given that the draft national anti-corruption strategy is still being assessed 
and  is  not  yet  in  the  parliamentary  procedure  some  further  progress  has  been  achieved 
regarding the implementation of the recommendation made in the previous reports.  

Some progress has been achieved towards establishing a track record of investigations, 
prosecutions and final  judgments in corruption offences.  The 2023 Rule of Law  Report 
recommended  Slovenia  to  ‘[…]  step-up  efforts  to  ensure  a  track  record  of  investigations, 
prosecutions and final judgments in corruption offences, including in high-level cases’77. The 
2023 Report identified serious concerns about the low number of investigations, indictments 
and  judgments  in  corruption  cases  and  the  length  of  proceedings78.  In  2023,  the  police 
investigated  212  cases  of  corruption  offences  and  crimes  with  elements  of  corruption,  a 
considerable  decrease  compared  to  an  overall  total  of  623  cases  in  202279.  The  number  of 
indictments  for  corruption  offences  launched  by  the  prosecution  services  in  2023  increased 
only  slightly  compared  to  2022.  Decisions  in  corruption  cases  before  first  instance  courts 
increased considerably and the number of convictions almost doubled with also many more 
prison sentences imposed80. The State Prosecution Service managed to reduce the backlog of 
unresolved  criminal  notifications81.  Like  in  the  previous  year,  no  high-level  corruption 
judgments  were  delivered  in  202382  nor  were  there  any  reported  cases  or  investigations  of 
foreign bribery83. Nevertheless, the Specialised State Prosecution Office dealt with at least six 
cases in 2023 that could qualify as high-level corruption84, but which are not included in the 

76   Government  of  Slovenia  (2024),  Second  Joint  Interim  Report  on  the  Implementation  of  the  Slovenian 
Government’s  Integrity  and  Transparency  Programme in  the  Public  Sector  2023-2026  (for  the  period 
1.9.2023 – 29.2.2024). Ministries reported their activities supporting the permanent measures included in the 
Programme.  Among  the  measures  were  raising  awareness  among  public  employees  especially  in  areas 
considered riskier from the viewpoint of integrity, such as public procurement procedures.   

77   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 2. 
78   2023 Rule of Law Report, Country Chapter on the  rule of law situation in Slovenia, pp. 15-17 and related 
footnotes. According  to  the  2024  EU  Justice  Scoreboard  (Figure  23),  at  first  instance  criminal  courts,  the 
average  length  in  corruption  offences  in  2022  increased  to  889  days,  up  from  793  days  in  2021,  which 
remained the highest in the EU. 

79   Although  the  ten-year  trend  in  the  number  of  corruption  offences  and  those  with  elements  of  corruption 
(such  as  abuse  of  position  or  trust  in  economic  activity,  abuse  of  official  position  or  officials’  rights,  and 
damage to public funds) dealt with by the police is on the rise, there are significant or minor variations in the 
number  of  offences  dealt  with  annually  due  to  lengthy,  large  and  demanding  pre-trial  proceedings. 
Information and written contribution from the Police and the National Bureau of Investigation in the context 
of  the  country  visit  to  Slovenia  and  input  from  Slovenia  for  the 2024  Rule of  Law  Report,  pp. 12 and  24 
(Appendix 3).  

80   In  2023,  state  prosecutors  requested  investigative  judges  to  conduct  89  investigations  (54  in  2022)  and 
launched 33 indictments (26 in 2022). Courts published 29 decisions involving corruption offences in first 
instance, considerably higher than the 12 in 2022, and imposed 21 convictions (11 in 2022) and 12 prison 
sentences (2 in 2022). The number of acquittals (4 in 2023 and 0 in 2022) and dismissals (4 in 2023 and 1 in 
2022)  were  also  slightly  higher.  Input  from  Slovenia  for  the  2024  Rule  of  Law  Report,  pp.  12  and  23 
(Appendix 2). Data provided is for the period from 1 January 2022 to 4 December 2023. Data on abuse of 
position  offences  are  not  normally  included  in  the  main  statistics.  For  the  latter,  in  2023  there  were  74 
adjudicated cases (28 in 2022) and 12 prison sentences (3 in 2022).  

81   In 2023, 375 criminal notifications to the State Prosecution Office remained unresolved (405 in 2022). 
82   Since  2019,  there  has  only  been  one  judgment  in  2020  involving  a  mayor.  2023  Rule  of  Law  Report, 

Country Chapter on the rule of law situation in Slovenia, p. 16.  

83   In 2023, state prosecutors underwent training to improve their skills to investigate and prosecute corruption 
offenses,  including  foreign  bribery.  Input  from  Slovenia  to  the  2024  Rule  of  Law  Report  and  written 
contribution from the Supreme State Prosecutor’s Office in the context of the country visit to Slovenia.  
84   Written  contribution  from  the  Specialised  State  Prosecution  Office  in  the  context  of  the  country  visit  to 
Slovenia. See also 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 16 

14 

 
 
 
overall  data  for  ‘classic’  corruption  offences85.  The  Supreme  State  Prosecution  Office 
concluded  its  analysis  to  assess  the  quality  of  work  and  effectiveness  of  prosecutions  in 
criminal  cases  against  officials  of  local  authorities86.  Cooperation  between  the  European 
Public  Prosecutor’s  Office  and  the  prosecution  and  police  continues  to  work  well87.  On  19 
June 2024, the Parliament adopted amendments to the Criminal Procedural Code88 that limit 
the possibilities to use certain investigative measures such as secret surveillance or access to 
electronic communications data or banking data, in line with a July 2023 Constitutional Court 
decision89.  Certain  drafting  suggestions  proposed  by  the  prosecution  and  the  police  on  the 
original draft law were taken into consideration by the Ministry90. However, concerns remain 
that  these  changes  could  hinder  their  ability  to  effectively  investigate  and  prosecute 
corruption offences  although the real  effects  can only  be assessed once the provisions have 
entered into force and put into practice91. In light of the improvement in the numbers relating 

and footnote 97. As reported last year, the pre-trial phase of an investigation against the Prime Minister and 
other persons was closed in May 2023. As for the other cases, on 1 February 2024, the Court approved the 
start of an investigation in the case involving three persons, among them a deputy mayor and a mayor, and 
other pre-trial proceedings against three persons, among them a mayor, are still ongoing (due to delays in the 
Police). 

85   High-level officials such as state secretaries or mayors are usually prosecuted under offences such as abuse 
of  office  that  are  not  included  in  the  data  for  ‘corruption  offences’  even  though  they  contain  elements  of 
corruption  or  a  corrupt  background.  These  offences  carry  a  lower  evidentiary  bar  and  although  the  law 
provides for lower penalties, courts often impose sentences that are comparable to, or even higher than, those 
for  ‘classic’ corruption offences, such as bribery. As noted in the input from Slovenia to the 2024 Rule of 
Law Report (p. 23, footnote 69), the Specialised State Prosecution Office has obtained convictions in several 
cases  where  officials  and/or  high-ranking  officials  and/or  directors  of  state-owned  enterprises  were 
prosecuted for these offences. Were these cases included in the statistics on corruption offences, the overall 
picture of the track record would be more positive. 

86   The internal peer-review assessed the quality of work and the effectiveness of prosecution in criminal cases 
against officials at local level in relation to the performance of official duties and the use of public funds. It 
concerned  the  lack  of  indictments  or  convictions  in  the  majority  of  243  cases  against  35  officials  at  local 
level (e.g., mayors and deputy mayors) in the period 2007-2020. 2023 Rule of Law Report, Country Chapter 
on the rule of law situation in Slovenia, p. 16. The  report is not yet final pending appeal procedures from 
several prosecutors. In principle, the findings of the internal professional reviews are not public. Preliminary 
findings  (end  Feb.  2024)  indicate  that  out  of  a  total  of  221  files  examined,  there  were  169  dismissals,  10 
convictions,  13  acquittals,  5  rejections  and  24  terminations  of  criminal  proceedings.  Information  received 
from the Supreme State Prosecution Office in the context of the country visit to Slovenia.  

87   Input from EPPO for the 2024 Rule of Law Report. In 2023, the EPPO did not investigate any corruption 

offences in Slovenia, EPPO (2024), Annual Report 2023.  

88   Act on Amendments to the Criminal Procedure Act (ZKP-P), adopted by Parliament on 19 June 2024. 
89   Judgment of the Constitutional Court of 6 July 2023, U-I-144/19 that will come into effect on 12 Aug. 2024. 
90   For instance, the Ministry partially took on board some of the suggestions by the prosecution so that certain 
investigative measures can still be applied for the offences of abuse of office and official duties and abuse of 
position or trust in business activity. Other suggestions could not be taken into account due to the explicit 
requirements in the July 2023 Constitutional Court judgement. Written contribution from the Supreme State 
Prosecution Office and the Ministry of Justice in the context of the country visit to Slovenia.  

91   The proposed changes to the Criminal Procedure Code would increase the standard of proof to obtain certain 
telecommunications data to the same level for ordering more invasive measures such as secret surveillance 
measures or taping and recording of electronic communications. The use of certain investigative measures to 
obtain communications and financial data would also be confined to a more limited list of offences and for a 
more limited period. Information and written contribution from the Supreme State Prosecution Services, the 
Specialised  State  Prosecution  Service  and  the  Police  in  the  context  of  the  country  visit  to  Slovenia. 
Challenges to the effective prosecution of corruption cases such as high evidentiary standards and the lack of 
the  probative  value  of  certain  witness  statements  were  also  highlighted  in  the  2023  Rule  of  Law  Report, 
Country Chapter on the rule of law situation in Slovenia pp. 16-17 and related footnotes. 

15 

 
 
to the investigation, prosecution and adjudication of corruption offences, there has been some 
progress in the implementation of the recommendation made in the 2023 Rule of Law Report.  

Investigations about possible high-level political influence in police decision-making are 
ongoing  and  plans  to  regulate  the  prevention  of  any  such  influence  have  been 
postponed. The expected amendments to the Police Tasks and Powers Act to better regulate 
the supervision  of police work and prevent  any political  influence in  decision-making have 
been postponed92. A parliamentary inquiry about  possible political influence in  the work of 
the police and the appointment of the Director General of the Police, that had resulted in the 
resignation of the then Minister of the Interior, began in June 2023 and is still ongoing93. In 
November 2023, CPC opened an investigation against the Prime Minister regarding potential 
breaches  of  integrity  rules94.  In  January  2024,  the  CPC  temporarily  suspended  its 
investigation  in  the  interest  of  the  ongoing  pre-trial  criminal  investigation  initiated  by  the 
Specialised State Prosecution Office95.  On 22  February 2024, the Government submitted to 
Parliament a draft Resolution on the National Programme for the Prevention and Suppression 
of Crime 2024-2028 which was adopted on 26 April 2024. The Resolution takes a strategic 
approach to providing internal and public security, including the fight against corruption96.  

Resources  and  training  for  the  police  continued  to  improve.  The  National  Bureau  of 
Investigation reported that it recruited five new officers (as indicated in the 2023 Rule of Law 
Report97) and is hiring another two98. In 2023, 116 criminal police investigators were trained 

92   The Ministry of the Interior’s priority is adjusting the Act to the normative obligations under EU law, after 
which further amendments to the Act are planned. Information and written contribution from the Ministry of 
the Interior in the context of the country visit to Slovenia.  

93   A lawsuit before the Administrative Court initiated by the rejected candidate for the post of Director General 
(the  former  acting  Director  General)  who  claimed  that  the  chosen  candidate  did  not  fulfil  the  necessary 
requirements  is  also  pending.  Commission  for  the  Prevention  of  Corruption,  Press  release:  ‘Notice  of 
initiation  of  an  inquiry  against  the  Prime  Minister’,  20  November  2023.  These  issues  have  also  been 
extensively  reported  in  the press.  See  also  2023  Rule  of  Law  Report,  Country  Chapter on  the  rule of  law 
situation in Slovenia, p. 14 and footnote 76. 

94   This  investigation  is  in  connection  to  reports  of  alleged  unauthorised  pressure  having  been  exerted on  the 

former Minister of the Interior and other employees at the Ministry. 

95   The CPC clarified that given the on-going pre-trial investigation, it had to suspend certain procedural rights 
of  the  person  concerned  so  as  not  to  prejudice  the  ongoing  criminal  investigation.  Commission  for  the 
Prevention of  Corruption,  Press  release:  ‘In  the  interests  of  the  proceedings  before  the  Prosecutor's  Office 
and  the  police,  the  Commission  had  to  suspend  the  investigation  against  the  Prime  Minister’,  22  January 
2024.  In  April  2024,  the  Administrative  Court  dismissed  the  Prime  Minister’s  request  for  recusal  of  the 
CPC’s  member  on  procedural  grounds,  which,  if  successful,  could  have  blocked  the  CPC’s  work  in  this 
matter.  The  CPC  President  already  withdrew  from  decision-making  in  this  matter.  Both  the  CPC  and  the 
Prime Minister’s lawyer appealed to the Supreme Court, acting as a second instance court in administrative 
cases, asking the Court to decide on the merit of the recusal request. RTV,  ‘Administrative Court dismisses 
Prime Minister Golob's lawsuit over the decision of the CPC’, 5 April 2024. 

96   Resolution  on  the  National  Programme  for  the  Prevention  and  Suppression  of  Crime  2024-2028 
(RENPPZK24-28).  The  resolution’s  objectives  include  improving  and  harmonising  legal  provisions  and 
public procurement practices in order to reduce corruption and increase the efficiency of public procurement, 
and  ensuring  adequate  law  enforcement  capacity  to  detect,  investigate  and  prosecute  corruption-related 
crime. See also input from Slovenia for the 2024 Rule of Law Report, p. 8, and written contribution from the 
Ministry of Interior in the context of the country visit to Slovenia. 

97   2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 14. 
98   166 criminal investigators (203 posts in total) in the police administration are responsible for investigating 
economic  crime  and  corruption.  There  are  13  criminal  investigators  (19  posts  in  total)  in  the  Economic 
Crime  Division  of  the  General  Police  Directorate  (2  are  in  the  Corruption  Division).  55  out  of  65  senior 

16 

 
 
 
to investigate corruption and economic crime more effectively while training for local police 
to  better  detect  corruption  is  also  taking  place99.  The  police  has  established  a  register  of 
conflicts  of  interest  that  is  currently  in  a  pilot  phase.  No  breaches  or  violations  due  to 
conflicts of interest were detected in the police in 2023100.  

The expected increase in human and technological resources for the Commission for the 
Prevention  of  Corruption  was  delayed  as  financial  resources  were  only  allocated  in 
early  2024  due  to  the  budget  cuts  on  account  of  a  national  crisis  situation.  Once  the 
financial  resources  were  allocated  in  early  2024  it  was  possible  to  start  recruitment 
procedures for the additional staff which had been expected in 2023101. However, attracting 
qualified experts is not easy102. The CPC’s plans to replace and renew its internal IT system 
to facilitate and simplify the input and availability of data on asset declarations, lobbying and 
whistleblowing103  may  be  delayed  due  to  recent  changes  to  the  way  the  public  sector’s  IT 
systems are managed104. In 2023, the CPC enforced administrative sanctions for omission of 
reporting to  18 registered lobbyists105. It  carried out  an analysis of the asset declarations of 
the current members of Government and Parliament (following the change of government in 
2022)  and  an  analysis  of  asset  declarations  in  the  healthcare  sector.  In  2023,  overall,  it 

criminal  investigators  (70  posts  in  total)  in  the  NBI  investigate  economic  crime  and  corruption.  Written 
contribution from the Police in the context of the country visit to Slovenia.  

99   Written contribution and information from the Police in the context of the country visit to Slovenia. See also 

input from Slovenia to the 2024 Rule of Law Report, p. 8.  

100  Corruption offences in the police are investigated by police officers of the Department for Investigation and 
Prosecution of Officials with Special Powers, which operates as an independent internal organisational unit 
of the Specialised State Prosecution Office. The Police  has established a register of conflicts that includes 
the recording of police proceedings when a police officer has a conflict of interest. The statistics can be used 
to identify potential systemic risks in specific areas of police work. The records are also used in intelligence 
gathering to detect and mitigate corruption risks. Written contribution and information from the Police in the 
context of the country visit to Slovenia. 

101  According to input from Slovenia for the 2024 Rule of Law Report, the 2024 allocated budget is EUR 2.95 
million (compared to EUR 2.4 million in 2022). Annual fluctuations in staff levels are partly explained by 
retirements  or  resignations.  In  June  2024,  the  CPC  was  finalising  the  employment  procedure  of  the  IT 
system  administrator  (ongoing  for  the  last  two  years).  By  1  July  2024,  the  CPC  expects  to  employ  five 
additional persons - three for an indefinite and two for a definite period of time  - and a further two and an 
intern  later  in  the  year.  Written  contribution  and  information  received  from  the  CPC  in  the  context  of  the 
country visit to Slovenia. 

102  Remuneration  scales  for  CPC  senate  officials  have  not  changed  since  2004. According  to  the  CPC,  their 
officials are among the least paid among the independent state bodies. This leads to an anomalous situation 
where  some  CPC  employees  have  a  higher  salary  than  the  officials.  Out  of  41  current CPC  employees,  3 
have a higher salary and 2 have the same salary as the  Chief Commissioner, while 9 have a higher salary 
than  the  CPC  Deputies.  This  has  discouraged  top  experts  from  applying.  Information  and  written 
contribution received from the CPC in the context of the country visit to Slovenia.  

103  See also 2023 Rule of Law Report, p. 18. 
104  The CPC submitted a revised budget for 2025 in mid-June, which includes an application for an increase in 
IT  funds. A  final  decision  on  the  budget  will  be  available  in  November  2024. An  agreement  between  the 
CPC  and  the  Ministry  of  Digital  Transformation,  that  took  over  responsibility  for  the  management  of  the 
public  sector’s  servers  from  the  Ministry  of  Public  Administration,  will  be  concluded  in  August  2024. 
Written contribution from the CPC in the context of the country visit to Slovenia.  

105  As of 31 December 2023, there were 84 lobbyists registered in the Registry of Lobbyists, of which 46 sent 
reports on lobbying activities performed in 2023. CPC Annual report 2023 and written contribution in the 
context  of  the  country  visit  to  Slovenia.  According  to  the  2024  OECD  Anti-Corruption  and  Integrity 
Outlook: Country Fact Sheet 2024 (p. 6), Slovenia is among the top performers fulfilling 75% of criteria for 
regulations and 78% for practice, compared to the OECD average of 38% and 35% respectively.  

17 

 
 
imposed  4  fines,  20  reprimands,  26  warnings  and  13  dismissals  relating  to  asset 
declarations106.  

Legislation on supervision of conflicts of interest and incompatibility of office is  being 
reviewed.  The  2023  Rule  of  Law  Report  had  identified  a  gap  between  the  oversight  and 
supervision of conflicts of interests of high-level officials, covered by the CPC, and of public 
servants,  covered  by  the  Public  Employees  Act  (PEA)107  supervised  by  their  hierarchical 
superiors108. The Government is considering legislative changes to the PEA, but the CPC is 
concerned that it does not have the resources to take on the additional responsibility for the 
integrity  oversight  of  all  public  servants109.  In  2023,  the  CPC  received  more  reports  on 
corruption and other breaches of the Integrity and Prevention of Corruption Act (IPCA) such 
as incompatibility of office (817 compared to 695 in 2022) of which the majority related to 
corruption (617 compared to 353 in 2022)110. Of the 38 reports received on incompatibility of 
office the CPC concluded 26111. It received 76 conflict of interest reports and concluded 69 
cases112. It reported 123 cases to the police or the State Attorney’s Office (82 in 2022).  

The  frequency  of  the  Court  of  Audit’s  checks  over  the  largest  political  parties  is 
expected  to  increase  following  changes  to  the  law  on  political  party  financing.  In  July 
2023,  Parliament  revised  the  system  of  political  party  financing113.  The  new  rules  now 
require the Court of Audit to carry out mandatory audits over a four-year period of all parties 
that receive public funds of at least EUR 100 000, up from the EUR 10 000 threshold under 
the previous rules. In practice, mandatory audits will only be carried out for the largest parties 
while smaller parties will be audited if the Court of Audit sees a risk of possible irregularities 
or if other corruption prevention bodies detect irregularities114. Penalties for breaches of the 

106  Written contribution from the CPC in the context of the country visit to Slovenia. 
107  The Public Employees Act covers national and local level public servants and does not necessarily prohibit 
them  from  engaging  in  any  paid  professional  or  other  activities,  meaning  they  would  not  be  in  breach  of 
incompatibility  of  office  or  function.  The  amount  of  additional  income  deriving  from  certain  activities  in 
associations, foundations or political parties is not limited and is not taken into consideration when assessing 
incompatibilities of office or conflict of interest. Article 27 (1) of the IPCA.  Written contribution from the 
CPC in the context of the country visit to Slovenia. See also Rule of Law Report 2022, p. 13, footnote 85, 
and 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 8. 

108  Instead,  the  supervisory  bodies  of  companies  owned  by  local  municipalities  (e.g.,  Council  of  a  health 
institution owned by the municipality) would carry out such checks although these are not done very often. 
2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 8. 

109  There are more than 160 000 public officials in Slovenia. See input from Slovenia for the 2024 Rule of Law 
Report, and information received from the Ministry of Justice and the CPC in the context of the country visit 
to Slovenia. 

110  CPC annual report 2023, 27 May 2024 and written contribution from the CPC in the context of the country 
visit to Slovenia. 405 of these corruption cases were concluded, 205 were dismissed, 190 reports reviewed 
and transferred to other competent bodies, 2 reports transferred to other competent bodies, 8 reports rejected 
and 1 opinion adopted.  

111  Of which 20 were dismissed while 6 were dismissed and assigned to designated bodies. Ibid.  
112  Of which 12 findings on a concrete case  - 4 violations and 8 dismissals; 47 dismissed cases; 10 dismissed 

cases and assigned to designated bodies. Ibid.  

113  ZPolS-E, Official Gazette RS, no. 99/2013 of 3/12/2013 (2013 Political Parties Act) has now been replaced 

by ZPolS-G, Official Gazette, no. 78/2023 of 19/7/2023 valid as from 4 August 2023. 

114  The  relevant  provision  is  Article  24b,  paragraph  1  in  both  the  previous  and  current  versions  of  the  law. 
Under the previous rules, over a four-year cycle, the Court of Audit was obliged to carry out audits of all 
parties  that  received  more  than  EUR  10 000  and  to  audit  at  least  one-third  of  parties  each  year. 
Consequently, each party was only risk-assessed for the preceding one year and not for the remainder of the 
cycle. See 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 18. 

18 

 
 
rules  were  reduced  and  will  now  be  determined  according  to  the  gravity  of  the  offence115. 
Focusing on the largest political parties should enable the Court of Audit to carry out more 
frequent audits of them.  The Court also  expects to make more efficient use of its resources 
while  still  maintaining  the  necessary  oversight  over  all  parties  and  campaign  financing116. 
While  Parliament  considers  that  these  changes  will  provide  more  transparency  and  control 
since much larger amounts of money will be audited117, a civil society organisation considers 
there will be less transparency in keeping track of public funds and that it would have been 
more appropriate to increase the Court’s resources118. Last year, the Court of Audit finalised 
13  audits  relating  to  the  campaign  finances  of  nine  political  parties  and  four  presidential 
candidates who participated in the 2022 parliamentary and presidential elections. In 2023 and 
2024, it completed three political party audits and is finalising three others for the financial 
year 2022119.  

Parliament  has  called  for  an  analysis  of  the  laws  on  the  prevention  of  corruption. 
Parliament adopted a Recommendation on 16 November 2023120 requesting the Government 
to  conduct  a  thorough  analysis  of  the  laws  and  implementing  regulations  governing 
corruption  prevention,  integrity,  transparency,  and  criminal  law  and,  if  necessary,  to  make 
proposals for legislative amendments. The Government has not planned any concrete follow-
up at this stage121. Although the CPC has welcomed the Recommendation, it has signalled the 
need for additional resources, especially legal analysts, should it be called upon to carry out 
the  ‘corruption-proofing’  of  existing  or  new  legislation122.  Parliament  did  not  receive  or 
review any possible breaches of the Code of Ethics in 2023123.  

Reporting channels for whistleblowers have been put in place. In April 2023, the CPC set 
up a new unit (the Centre for the Protection of Whistleblowers), which represents an external 
reporting  channel,  but  also  provides  consultation  and  trainings,  and  assistance  to  reporting 
persons  that  suffer  retaliation.  So  far,  the  CPC  has  had  to  tap  into  its  existing  resources  to 
carry  out  these  additional  responsibilities  rather  than  receiving  extra  staff  as  it  had 

115  The Court of Audit pointed to the disproportionate amount of fines and the severity of collateral sanctions 
when  it  audited  the  political  parties,  arguing  that  the  fines  were  disproportionately  high  compared  to  the 
individual  amounts  of  unlawful  contributions  or  other  irregularities  revealed  by  the  Court  of Audit  in  its 
reports. Written contribution from the Ministry of Interior in the context of the country visit to Slovenia. 
116  Information received from the Court of Audit and written contribution from the Ministry of Interior in the 

context of the country visit to Slovenia.  

117  Information  from  the  Parliament  Secretariat  and  written  contribution  from  the  Ministry  of  Interior  in  the 
context of the country visit to Slovenia. In May 2024, it was reported that Parliament set up a parliamentary 
inquiry targeting a company owned by the current Prime Minister and the alleged siphoning off of funds for 
the illegal financing of his party Freedom Movement in the campaign ahead of the 2022 general election, in 
which  the  party  emerged  as  a  winner. The  Slovenia Times  (2024),  Parliament  launches  inquiry  into  PM’s 
firm, political party. 

118  Information from Transparency International-Slovenia in the context of the country visit to Slovenia.  
119  Written contribution from the Court of Audit in the context of the country visit to Slovenia.  
120  ’The  National  Assembly  of  the  Republic  of  Slovenia  proposes  that  the  Government  of  the  Republic  of 
Slovenia  carries  out  a  thorough  analysis  of  the  legislation  and  implementing  regulations  governing  the 
prevention  of  corruption,  integrity,  transparency  and  punitive  law  in  view  of  the  increase  in  corrupt  acts.’ 
Parliament, Recommendation to the Government of the Republic of Slovenia on the Fight against Corruption 
in the Republic of Slovenia of 16 November 2023. 

121  A similar exercise had already been carried out in 2020. Information received from the Ministry of Justice in 

the context of the country visit to Slovenia.  

122  Information received from the CPC in the context of the country visit to Slovenia. 
123  Input from Parliament for the 2024 Rule of Law Report, p. 19. 

19 

 
 
anticipated124. In April 2024, the CPC published its first  statistical  report on the number of 
whistleblowing reports125. Parliament adopted internal Guidelines on the Establishment of an 
Internal  Reporting  Channel  under the 2023 Whistleblower Protection  Act  and appointed an 
internal trustee. The trustee did not receive any whistleblower reports in 2023 and forwarded 
its report to the CPC in early March126. 

A  risk  analysis  of  corruption  and  conflicts  of  interest  in  the  healthcare  sector  was 
carried  out  and  risks  in  public  procurement  persist.  The  Flash  Eurobarometer  on 
Businesses’ attitudes towards corruption in the EU shows that 34% of companies in Slovenia 
(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  years127.  In  July  2023,  the  CPC 
concluded its Analysis  of the Functioning  of the  Public Sector in  Healthcare that identified 
risks of both corruption and integrity violations128. It made various recommendations for risk 
management,  corruption  prevention  and  strengthening  of  integrity,  transparency,  and 
accountability. The CPC is carrying out another analysis of the operation of the two largest 
hospitals in Ljubljana and expects to present its report by mid-October 2024129. The CPC has 
identified decision-making in local government, public procurement (including in relation to 
the recovery and resilience plan) and spatial planning and environmental matters among the 
sectors at a high risk of corruption. The Specialised State Prosecution Office identified risks 
in  the building,  energy, and health sectors130. The Medium-Term Plan for the Development 

124  Information received from the CPC in the context of the country visit to Slovenia. 
125  Commission  for  the  Prevention  of  Corruption  (2024),  Annual  report  on  the  handling  of  whistleblower 
protection  cases  for  2023.  The  report  is  based  on  data  collected  from  2  038  obliged  entities  that  have 
received  a  total  of  433.  See  p.  4.  The  statistics,  however,  do  not  indicate  if  the  reports  were  related  to 
corruption offences. The CPC stated that it is too early to fully evaluate the numbers since this is the first 
dataset  available  while  acknowledging  there  is  still  room  for  improvement  regarding  the  general 
effectiveness of the legal framework. CPC (2024), First reporting after the introduction of the PRTR: good 
response and room for improvement. 

126  Input  from  Parliament  for  the  2024  Rule  of  Law  Report,  p.  16.  According  to  information  from  the 
Specialised  State  Prosecution  Office  in  the  context  of  the  country  visit  to  Slovenia,  the  detection  and 
reporting  of  corruption  offences  remains  low  and  the  situation  from  a  criminal  law  perspective  has  not 
improved  despite  the  Whistleblower  Protection Act. A  similar  view  was  expressed  in  2023  Rule  of  Law 
Report, p. 19. 

127  Flash Eurobarometer 543 on Businesses’ attitudes towards corruption in the EU (2024). This is 7 percentage 

points above the EU average. 

128  Commission for the Prevention of Corruption, Press release: ‘Health analysis highlighted a number of risks 
for  both  corruption  and  integrity  violations’,  Press  Release  5  July  2023.  The  analysis  covered  the  period 
from  1  January  2018  to  31  December  2022  and  focused  on  the  10  largest  suppliers  to  26  selected  public 
healthcare institutions in the procurement of medical equipment, pharmaceutical products, and personal care 
products. See also input from Slovenia to the 2024 Rule of Law Report, pp. 10-11. 

129  Information from the CPC in the context of the country visit to Slovenia. The analysis of the operation of the 
University  Medical  Center  Ljubljana  and  the  University  Medical  Center  Maribor  concerns  the  additional 
work  performed  by  doctors  or  other  employees  (via  contracts  for  additional  work  or  other  forms  of 
contracts)  for  those  two  medical  centres  including  for  the  consultations  that  are  performed  outside  of  the 
public  health  system,  paid  by  the  patients  themselves,  but  performed  by  the  same  doctors  in  the  same 
premises with the same medical  equipment. It will also assess the extent of the  problem whereby patients 
that  consult  doctors  privately  are  given  preferential  treatment  to  access  public  health  services  where  the 
doctor is assigned. 

130  Information  received  from  the  Specialised  State  Prosecutor’s  Office  in  the  context  of  the  country  visit  to 
Slovenia.  See  also  Specialised  State  Prosecutor’s  Office  (2024),  ‘2023  Report  on  the  operations  of  the 
Specialised  Public  Prosecutor’s  Office  of  the  Republic  of  Slovenia  –  key  highlights’,  press  release  21 
February 2024. The most classic corruption crimes related to public contracts and public tenders or official 

20 

 
 
 
and  Work  of  the  Police  2023-2027  focuses  on  the  detection  and  investigation  of  crimes  in 
areas  where  corruption  risks  are  high,  such  as  major  investments  and  projects  and  related 
public  procurement  at  the  European,  national,  and  local  levels131.  The  National  Review 
Commission, responsible for reviewing public procurement award procedures132, indicated a 
decline in the number of reviews it is carrying out133. As a possible reason for this decline, it 
referred  to  recent  legislative  improvements  and  increased  transparency  arising  from  the 
digitalisation of the public procurement procedures134.  

III.  MEDIA PLURALISM AND MEDIA FREEDOM 

In Slovenia, the legal framework for freedom of expression and information is established in 
the Constitution135, while media plurality is ensured through specific secondary legislation136. 
The regulator for audiovisual media services is the Agency for Communication Networks and 
Services  (AKOS),  which  is  legally  and  functionally  distinct  from  the  Government.  The 
Access  to  Public  Information  Act137  guarantees  access  to  information  held  by  public 
authorities, while the implementation of the new governance framework of the public service 
broadcaster  Radio  Television  Slovenia  was  completed  in  the  second  half  of  2023138.  The 
Government  has  put  forward  a  proposal  to  reform  the  Mass  Media  Act  with  a  view  to 
overhaul and update the media legal framework139.  

procedures, which are supported by the state or municipality, or state and municipal institutions and entities 
that manage public money.  

131  Input  from  Slovenia  to  the  2024  Rule  of  Law  Report,  pp.  7-8.  The  draft  resolution  on  the  National 
Programme for the Prevention and Suppression of Crime states that  to protect public funds, more attention 
will  need  to  be  paid  to  procurement  practices  as  they  are  strongly  linked  to  corruption.  Improving  these 
practices could help reduce  corruption and increase the efficiency of public procurement. See pp. 8, 40-41 
and 45 of the draft resolution. 

132  The former Minister of Justice resigned on 16 February 2024 after she took responsibility for a controversial 
purchase  and  mismanagement  of  public  funds  relating  to  a  building  in  Ljubljana  meant  to  house  several 
courts.  RTV,  Prime  Minister  Golob  sent  the  resignation  letter  of  Minister  Švarc  Pipan  to  Parliament;  the 
Government  dismissed  Igor  Šoltes,  15  February  2024.  Necenzurirano  (2024),  'House  searches  in  case  of 
overpaid court building. Today, the National Bureau of Investigation (NPU) conducts house searches for the 
controversial purchase of a building on Litijska cesta in Ljubljana’. In a separate procedure under the same 
former  Minister,  the  National  Review  Commission  (NRC)  twice  annulled  a  public  procurement  bid  to 
digitise  notary  services  that was  twice  offered  to  the  same  contractor  without  experience  in  such  services. 
The  NRC  found  that  the  Ministry  of  Justice  did  not  follow  the  public  procurement  rules.  Information 
received from the National Review Commission in the  context of the country visit to Slovenia. Delo, The 
NRC annuls the selection for the second time, 14 February 2024.  

133  In  2023,  the  National  Review  Commission  received 160  requests  for  review  compared  to  170  in 2022.  In 
2023,  by  value,  69%  concerned  reviews  of  public  procurement  of  medical  equipment  and  pharmaceutical 
supplies. As  for  the  number  of  judicial  reviews  before  the Administrative  Court,  in  2023  four  judgments 
were published and one was launched. National Review Commission, Report 2023, pp. 22, 41 and 69.  

134  Information received from the National Review Commission in the context of the country visit to Slovenia. 

See also 2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 21. 

135  Constitution of Slovenia, Article 39. Slovenia ranks 42nd in the 2024 Reporters without Borders World Press 

Freedom Index compared to 50th in the previous year.  

136  Mass Media Act, Audiovisual Media Services Act, Electronic Communication Act 2022. 
137  Access to Public information Act. 
138  Amendments 
to 

the  Radio  Television  Slovenia  Act.  According  to  European  Parliament’s  Flash 
Eurobarometer: News & Media Survey 2023, 48% of respondents in Slovenia stated that they trust public 
TV and radio stations, in line with the EU average of 48%. 

139  Draft  new  Mass  Media Act.  The  Government  conducted  the  public  consultation  on  the  draft  between  12 
December  2023  and  31  January  2024.  Following  the  comments  received  in  the  context  of  the  public 

21 

 
 
 
The  media  regulator  is  expected  to  acquire  further  regulatory  competences,  while 
challenges  persist  regarding  its  resources  and  the  lack  of  safeguards  against  risks  of 
political  influence.  The  designated  media  authority  AKOS  also  serves  as  the  independent 
regulatory  authority  for  telecommunications,  postal  services  and  railway  services140.  In  this 
respect,  AKOS  is  expected  to  acquire  further  digital  regulation  competences  as  Digital 
Service Coordinator under the Digital Services Act141, as well as new tasks in the assessment 
of media market concentrations142. To perform the broad variety of tasks it has been entrusted 
with,  AKOS  relies  on  a  self-financing  system  based  on  contributions  collected  from  the 
undertakings  that  operate  under  its  regulatory  remit143.  However,  challenges  remain144  with 
respect 
increasing 
competences145.  Concerns  persist  with  respect  to  AKOS’  effective  independence146, 
stemming from the lack of safeguards against risks of political influence147.  

the  adequacy  of  AKOS’  resources 

to  effectively  fulfil 

its 

to 

There is a well-established self-regulatory system for journalists.  The Journalists’ Court 
of Honour, a body co-funded by the Union of Journalists and the Association of Journalists, 
provides  for  a  well-functioning  self-regulatory  system  for  journalists148.  The  Journalists’ 
Court of Honour is tasked with overseeing journalists’ compliance with the professional and 
ethical  standards  embodied  in  the  relevant  Code  of  Ethics149.  To  this  end,  it  handles 
complaints  about  alleged  breaches  of  the  Code  of  Ethics150  and  can  seek  to  settle  disputes 
between journalists and complainants through conciliation151. The initial version of the draft 
new Mass Media Act envisaged the establishment of the National Board for Media, serving 

consultation, the hearing of the draft in the National Assembly is planned to take place in the September or 
October 2024 session.  

140  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 22. 
141  2024 Media Pluralism Monitor, country report for Slovenia, p. 12; Government (2024), Press release  - 86th 
regular session of the Government, as confirmed by information received from AKOS, Peace Institute and 
the National NGO umbrella network (CNVOS) in the context of the country visit to Slovenia. 

142  Draft new Mass Media Act, Article 20. as confirmed by information received in the context of the country 

visit to Slovenia from AKOS, Peace Institute and the National NGO umbrella network (CNVOS). 

143  To carry out its regulatory competences in the media sector, AKOS relies on 11 employees and on a budget 
amounting to EUR 706 000 in 2023, which, according to the financial plan, is expected to increase to EUR 
821 000 in 2024, Written contribution received from AKOS in the context of the country visit to Slovenia. 
144  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, pp. 22-23; 2023 Media 

Pluralism Monitor, country report for Slovenia, p. 12. 

145  2024  Media  Pluralism  Monitor,  country  report  for  Slovenia,  p.  12;  Contribution  from  Liberties  (Peace 
Institute)  for  the  2024  Rule  of  Law  Report,  pp.  7-8,  as  confirmed  by  information  received  from  Peace 
Institute and National NGO umbrella network (CNVOS) in the context of the country visit to Slovenia. 
146  In particular, the Director General is still appointed by the Government upon a proposal from the responsible 
minister, after a public selection and there are no rules for the Director General to avoid conflict of interests 
during the term of office with the Government or the political parties, Electronic Communication Act; 2023 
and 2022 Rule of Law Reports, Country Chapter on the rule of law situation in Slovenia, pp. 23 and 17. 
147  Euromedia  Onwership  Monitor  (2023),  Slovenia  Country  report  2022;  contribution  from  Liberties  (Peace 
Institute) for the 2024 Rule of Law Report, p. 7, as confirmed by information received in the context of the 
country visit to Slovenia from the Peace Institute and the National NGO umbrella network (CNVOS).  

148  The Journalists’ Court of Honour operates at national level and consists of representatives of journalists and 
the public, contribution from Liberties (Peace Institute) for the 2024 Rule of Law Report, p. 8; 2024 Media 
Pluralism  Monitor,  country  report  for  Slovenia,  p.  18.  Further  information  is  available  on  the  Journalists’ 
Court of Honour’s website (razsodisce.org).  

149  Journalists’ Court of Honour (2019), Codes of Ethics for Journalists of Slovenia. 
150  The Journalists’ Court of Honour adopted 23 decisions in 2023 and 6 decisions in first three months of 2024, 
Journalists’ Court of Honour (2024), Judgments adopted; contribution from Liberties (Peace Institute) for the 
2024 Rule of Law Report, p. 8. 

151  Journalists’ Court of Honour (2015), Rules on the work of the Journalists’ Court of Honour.  

22 

 
 
as  an  advisory  body  entrusted  with  monitoring  and  advisory  tasks  on  matters  of  public 
interest  in  the media152. It  would  have been  composed of seven members with expertise on 
media  matters  or  managerial  experience  in  media,  who  would  have  been  appointed  by 
Parliament upon a proposal of the Government following a public call153.  

While the new governance model contributed to improving the independence of Radio 
Television  Slovenia,  the  public  service  broadcaster  is  facing  a  financial  crisis  and 
changes  to  its  funding  are  needed  to  guarantee  appropriate  resources.  Following  the 
Constitutional  Court’s  decision  in  May  2023  to  lift  the  temporary  suspension  of  the 
amendments to the RTV Slovenia Act154, the new governing and management bodies of RTV 
Slovenia  were  established  and  started  their  operation155.  The  new  governance  structure, 
characterised by members who are no longer politically appointed, contributed to improving 
the independence of RTV Slovenia156. This improved capacity to operate more independently 
in  the  fulfilment  of  its  public  service  mission  was  also  reflected  in  the  positive  trend 
concerning  public  trust  in  RTV  Slovenia157.  Despite  these  positive  developments,  some 
stakeholders reported certain challenges related to the implementation of the new governance 
structure,  which  also  affected  the  effective  operation  of  the  RTV  Council  and  of  the 
management board158. Other stakeholders still maintain reservations on the ability of the new 

152  In particular, the tasks of the National Board for Media would include analysing the state of media pluralism, 
provide opinions in the procedures concerning the assessment of media market concentrations, and develop 
targeted proposal on media regulation,  Draft new Mass Media Act, Article 30; Input from Slovenia for the 
2024 Rule of Law Report, p. 13.  

153  Draft new Mass Media Act, Article 31. Following the public discussion and the first sectorial comments on 
the draft Mass Media Act, the establishment of the National Board for Media is no longer envisaged. Written 
contribution received from the Government in the context of the country visit to Slovenia. 
154  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, pp. 23-25. 
155  The constitutional review of the Act amending the RTV Slovenija Act is still ongoing. In November 2023, 
the new RTV Slovenia management withdrew the original constitutional review petition filed by the former 
President  of  the  RTV  Slovenia’s  Programme  Council.  In  December 2023,  the  National Council,  the upper 
chamber  of  Parliament,  submitted  a  request  to  the  Constitutional  Court  for  an  assessment  of  the 
constitutionality of the new provisions introduced by the Act amending the RTV Slovenia Act. 2023 Rule of 
Law Report, Country Chapter on the rule of law situation in Slovenia, pp. 23-25; STA (2023), Broadcaster 
management withdraws Constitutional Court petition; STA (2023), National Council opts for constitutional 
review of two laws; 2024 Media Pluralism Monitor, country report for Slovenia, p. 12. 

156  This view is shared by several stakeholders: contribution from Liberties (Peace Institute) for the 2024 Rule 
of  Law  Report,  pp.  12-13,  as  confirmed  by  information  received  in  the  context  of  the  country  visit  to 
Slovenia  from  AKOS,  the  Union  of  Journalists,  the  Association  of  Journalists,  Peace  Institute  and  the 
National  NGO  umbrella  network  (CNVOS).  The  2024  MPM  still  reported  a  high  risk  of  77%  for  the 
independence of public service media indicator. However, compared to the 96% figure registered in 2022, 
there  was a drop of 19 percentage points. The 2024 MPM attributes this improvement to the entering into 
force of the new governance structure of RTV Slovenija, 2024 Media Pluralism Monitor, country report for 
Slovenia, p. 18. 

157  According to an independent annual survey, RTV Slovenia was the entity with the highest increase in trust 
compared to 2022 results, Contribution from Liberties (Peace Institute) for the 2024 Rule of Law Report, p. 
16.  Further  information  is  available  on  the  researcher  website:  https://www.valicon.net/sl/2023/11/valicon-
ogledalo-slovenije-jesen-2023/.  

158  These challenges arose from inconsistencies in some of the rules on the distribution of competences between 
the  governing  and  management  bodies,  miscommunication  or  conflicts  between  members  of  such  bodies, 
and non-cooperation of the previous management in the transition phase. Contribution from Liberties (Peace 
Institute) for the 2024 Rule of Law Report, p. 13, as confirmed by information received in the context of the 
country visit to Slovenia from the President of the RTV Council, the Union of Journalists, the Association of 
Journalists, Peace Institute and the National NGO umbrella network (CNVOS). In May 2024, the President 

23 

 
 
 
model to guarantee RTV Slovenia’s independence159. Some160 have raised concerns regarding 
cases  of  directors’  replacements  and  internal  reassignments  of  editors  and  journalists161,  as 
well as with  respect  to  the cancellation of a daily news programme162 introduced under the 
previous  management163.  Stakeholders  have  also  noted  some  issues  as  regards  the  risks  of 
conflicts between employees and the new management in terms of the ability of the latter to 
implement  editorial  and  professional  changes  in  a  non-confrontational  manner164.  A  very 
difficult financial situation has brought RTV Slovenia under serious economic distress and is 
affecting  its  viability  and  programme  planning165.  This  has  prompted  the  Government  to 
directly support RTV Slovenia with additional funding for particular content and programmes 
to secure the rights of minorities166. The Government intervention was considered necessary 
but not sufficient to address the issue167. The financial difficulties, as also stressed by several 
stakeholders, are mostly related to the fact that the current funding model is based on a TV 

of the management board resigned following disagreements between the management board and members of 
RTV Council, STA (2024), Zvezdan Martić resigns as general manager of RTV Slovenija.  

159  In  particular,  there  are  concerns  as  regards  the  new  appointment  procedures  of  the  RTV  Council  that,  in 
certain  stakeholders’  view,  are  based  on  non-transparent  criteria  which  do  not  ensure  its  full  political 
independence. Written contribution received from the Association of Journalists and Publicists in the context 
of  the  country  visit  to  Slovenia.  See  also  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law 
situation in Slovenia, p. 24. 

160  Contribution from Liberties (Peace Institute) for the 2024 Rule of Law Report, p. 13; Written contribution 
received from the Association of Journalists and Publicists in the context of the country visit to Slovenia. 
161  In  particular,  following  internal  reassignment,  some  editors  and  journalists  were  offered  new  employment 
contracts  with  reduced  salaries  not  corresponding,  in  certain  instances,  to  the  relevant  qualifications  and 
work  experience,  Written  contribution  received  from  the  Association  of  Journalists  and  Publicists  in  the 
context of the country visit to Slovenia. 

162  RTV Slovenia’s management offered new employment contracts to all the staff affected by the cancellation 
of the programme, RTV (2024), RTV SLO: Most Panorama journalists accept contracts. This was confirmed 
in information received from the President of RTV Management Board, the President of RTV Council, the 
Union  of  Journalists,  the  Association  of  Journalists,  the  Peace  Institute  and  the  National  NGO  umbrella 
network (CNVOS) in the context of the country visit to Slovenia. 

163  The  daily  news  programme  was  cancelled  from  the  2024  production  plan  of  RTV  Slovenija  for  reasons 
related to its low performance and viewership, Information received from the President of RTV management 
board, the President of RTV Council, the Union of Journalists, the Association of Journalists, Peace Institute 
and  the  National  NGO  umbrella  network  (CNVOS)  in  the  context  of  the  country  visit  to  Slovenia.  The 
Union of Journalists had warned about the  risks to the  editorial autonomy and economic viability of RTV 
Slovenia  brought  by  the  decision  to  create  a  new  daily  news  programme  for  the  second  RTV  Slovenia 
channel.  Union  of  Journalists  (2022),  The  management  of  RTV  should  withdraw  from  the  proposed 
amendments  to  the  statutes,  as  confirmed  by  information  received  from  the  Union  of  Journalists  in  the 
context of the country visit to Slovenia. 

164  Contribution from Liberties (Peace Institute) for the 2024 Rule of  Law Report, p. 13; Written contribution 
received from the Association of Journalists and Publicists in the context of the country visit to Slovenia.  
165  Following  a  EUR  7  million  deficit  in  2023,  RTV  Slovenia  was  forced  to  curtail  its  programming  and 
production  plan  for  2024.  STA,  Public  broadcaster  RTV  Slovenia  in  the  red  last  year,  23  February  2024; 
information received in the context of the country visit to Slovenia from the President of RTV management 
board the President of RTV Council. 

166  The  Government  provided  RTV  Slovenia  with  additional  EUR  5  million  in  2023  and  EUR  10  million  in 
2024  to  cover  the  financing  of  minority  programmes,  which  the  public  service  broadcaster  is  required  to 
provide by law, 2024 Media Pluralism Monitor, country report for Slovenia, p. 19; STA (2023) RTV to get 
more funds for ethnic minority programmes; Contribution from Liberties (Peace Institute) for the 2024 Rule 
of  Law  Report,  pp.  13-14;  Information  received  from  the  President  of  RTV  Management  Board,  the 
President of RTV Council and the Ministry of Culture in the context of the country visit to Slovenia.  

167  Information  from  the  President  of  RTV  Management  Board,  the  President  of  RTV  Council,  the  Union  of 
Journalists,  the  Association  of  Journalists,  Peace  Institute  and  the  National  NGO  umbrella  network 
(CNVOS) received in the context of the country visit to Slovenia. 

24 

 
 
license fee that has not been adjusted to inflation rates for more than a decade, and thus fails 
to provide RTV Slovenia with the appropriate resources needed to be financially viable and 
properly fulfil its public service mission168. In this light, stakeholders stressed the importance 
of a comprehensive reform of RTV Slovenia’s funding system that could secure its financial 
independence and viability169.  

Stakeholders  called  for  further  strengthening  of  the  media  ownership  transparency 
framework,  which  is  currently  under  revision.  The  cross-chaining  of  ownership  in  the 
media market, which stems from shortcomings of the national rules regulating the disclosure 
of media ownership, remains a challenge170. The draft new Mass Media Act envisages further 
measures  in  the  field  of  media  market  transparency,  which  include  targeted  disclosure 
obligations  for  media  outlets171  and  the  establishment  of  a  new  media  transparency 
register172. Although  the broadening  of publicly  available data is  considered a positive step 
forward,  stakeholders  call  for  stronger  rules,  such  as  the  removal  of  the  5%  minimum 
threshold,  to  ensure  complete  transparency  of  media  ownership173.  The  high  level  of 
concentration of the media market, particularly in the radio sector, coupled with shortcomings 
affecting  the  implementation  and  enforcement  of  the  relevant  anti-concentration  rules, 
remains a challenge in terms of risks for media pluralism174. The draft new Mass Media Act 
envisages the introduction of a new system for the assessment of media market concentration 
in situations where it could represent a significant threat to the public interests in the media 
sector175.  However,  stakeholders  stressed  that  further  changes  and  clarifications  of  the 

168  The  TV  license  fee  amounts  to  EUR  12,75  per  month  and  has  remained  unchanged  since  2012, 
notwithstanding  labour  and  productions  costs  have  increased  due  to  inflation,  Contribution  from  Liberties 
(Peace Institute) for the 2024 Rule of Law Report, p.14; 2024 Media Pluralism Monitor, country report for 
Slovenia, p. 19, as confirmed by information received from the President of RTV Management Board, the 
President  of RTV Council, the Union of Journalists, the Association of Journalists, Peace Institute and the 
National NGO umbrella network (CNVOS) in the context of the country visit to Slovenia. 

169  Ibidem. 
170  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law  situation  in  Slovenia,  p.  26;  2023  Media 

Pluralism Monitor, country report for Slovenia, p. 14. 

171  Most notably, media actors will be required to disclose actual or potential conflicts of interest and to make 
publicly  available,  at  least  on  their  websites,  information  on  their  ownership  structures,  Proposal  for  the 
Media Act, Articles 18 and 19.  

172  In particular, the new media register will provide relevant, up-to-date and publicly available information on 
media,  such  as  their  ownership  structures,  their  beneficial  owners  and  the  sources  of  their  financing, 
including  data  on  the  amount  of  state  advertising  and  public  fundings  allocated  to  them,  Proposal  for  the 
Media Act, Article 16; Contribution from Liberties (Peace Institute) for the 2024 Rule of Law Report, p. 12; 
Information received in the context of the country visit to Slovenia from the Ministry of Culture. 

173  Contribution  from  the  Human  Rights  Ombudsman  for  the  2024  Rule  of  Law  Report,  p.  20;  Information 
received  in  the  context  of  the  country  visit  to  Slovenia  from  the  Union  of  Journalists,  the Association  of 
Journalists, the Peace Institute and the National NGO umbrella network (CNVOS). To be noted that the draft 
amendments  to  the  Mass  Media  Act,  presented  in  public  consultation  in  July  2020  by  the  previous 
Government envisaged to remove the 5% minimum threshold, 2021 Rule of Law Report, Country Chapter 
on the rule of law situation in Slovenia, p. 16. 

174  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law  situation  in  Slovenia,  p.  26;  2023  Media 
Pluralism Monitor, country report for Slovenia, p. 14; Contribution from Liberties (Peace Institute) for the 
2024 Rule of Law Report, pp. 8-10. The 2024 MPM reported a high risk of 73% for the plurality of media 
providers indicator, 2024 Media Pluralism Monitor, country report for Slovenia, pp. 14-15. 

175  Under the envisaged rules, the Slovenian Competition Protection Agency (the AVK) will assess the impact 
of  media  market  concentrations  on  media  pluralism,  while  the  National  Board  for  Media  and AKOS  will 
provide  the AVK  with  opinions  when  such  concentrations  concern  audiovisual  media  services,  draft  new 
Mass Media Act, Article 20. 

25 

 
 
relevant  provisions  would  be  needed  to  ensure  that  this  system  can  effectively  work  in 
practice and help reduce the concentration of the media market176.  

long-standing  source  of  concern178.  In  December  2023, 

The  Government  has  adopted  a  set  of  recommendations  and  is  developing  new 
legislative measures that are expected to improve the fairness and transparency of state 
advertising.  The  Government  has  put  forward  several  initiatives  aimed  at  increasing  state 
advertising  transparency  and  preventing  its  political  misuse177,  given  that  the  lack  of 
dedicated rules ensuring a fair and transparent allocation of state advertising to the media has 
been  a 
the  Government 
Communication  Office  adopted  a  set  of  recommendations  for  the  implementation  of 
advertising  campaigns  by  ministries,  ministerial  bodies  and  government  offices179.  Their 
main  purpose  is  to  ensure  a  transparent,  fair,  and  rational  allocation  of  Government’s 
advertising resources while also  increasing  the Government’s accountability  with  respect  to 
its advertising practices180. In a similar vein, the draft new Mass Media Act would introduce 
targeted rules on the transparent and fair allocation of state advertising to the media, which 
would  apply  to  national  and  local  authorities,  state-owned  enterprises,  and  state-controlled 
entities181.  Overall,  stakeholders  welcomed  these  rules  as  a  positive  step  forward  but  also 
indicated that further adjustments would be needed to make sure that the new framework for 
state advertising transparency is proportionate and effective182.   

176  In  particular,  stakeholders  referred  to  possible  enforcement  shortcomings  due  to  the  lack  of  relevant 
expertise of the regulators involved in the media pluralism assessment and also stressed that the concept of 
public interest as well as the relevant assessment criteria need to be further specified in order to ensure an 
effective implementation of the new framework, information received in the context of the country visit to 
Slovenia  from AKOS,  the  Union  of  Journalists,  the Association  of  Journalists,  the  Peace  Institute  and  the 
National NGO umbrella network (CNVOS). 

177  The  2024  MPM  reported  improvements  in  this  area,  as  illustrated  by  the  State  regulation  of  resources 
indicator,  which  scored  a  low  risk  of  29%  compared  to  the  medium  risk  of  38% registered  in 2022,  2024 
Media Pluralism Monitor, country report for Slovenia, p. 18. 

178  This has also prompted the launch of a Parliamentary inquiry in 2022 to investigate alleged misuse of state 
advertising  to  finance  political  parties;  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law 
situation in Slovenia, p. 27. Some stakeholders raised concerns regarding this inquiry, which they considered 
to be intended to discredit and investigate media outlets critical to the ruling Government. In particular, they 
referred to the negative financial consequences for the investigated outlets, stemming from the alleged undue 
pressure  on  public  bodies  not  to  engage  in  advertising  activities  with  such  outlets,  written  contribution 
received from the Association of Journalists and Publicists in the context of the country visit to Slovenia, p. 
2. 

179  Government  Communication  Office  (2023),  Press  release  -  Government  adopts  Recommendations  for 
transparent financing of advertising with public funds; contribution from Liberties (Peace Institute) for the 
2024 Rule of Law Report, pp. 11-12. 

180  In particular, ministries, ministerial bodies and government offices are required to publish on their websites 
annual reports of their advertising campaigns and to obtain the Government’s approval in order to carry out 
advertising campaigns the value of which exceeds EUR 50 000, Government Communication Office (2023), 
Press  release  -  Government  adopts  Recommendations  for  transparent  financing  of  advertising  with  public 
funds; contribution from Liberties (Peace Institute) for the 2024 Rule of Law Report, pp. 11-12. 

181  Most  notably,  the  new  rules  will  require  all  the  relevant  actors  to  follow  transparent  and  objective 
procedures, prepare and publish yearly reports on their advertising expenditure, and obtain an authorization 
from the Government to carry out advertising campaigns of a value exceeding EUR 50 000, draft new Mass 
Media Act, Art. 49. 

182  In particular, stakeholders referred to the opportunity for the Government, following the inputs received in 
the context of the public consultation and before submitting the final draft to the Parliament, to reconsider 
the  extension  of  the  governmental  authorisation  also  to  advertising  campaigns  carried  out  by  state-owned 
enterprises  and  state-controlled  entities  as  well  as  to  consider  the  introduction  of  a  clear  definition  of  the 

26 

 
 
 
A new handbook aims at improving state authorities’ handling of access to information 
requests,  while  the  Government  took  steps  to  address  journalists’  concerns  over 
proposed  rules  for  access  to  judicial  information.  The  general  framework  regulating  the 
right  of  access  to  information  held  by  public  bodies  is  set  out  in  the  Access  to  Public 
Information Act183. The number of complaints over failures by state authorities to respond to 
requests  of  access  to  information  have  decreased184  and  a  new  handbook  was  published  to 
provide the relevant public bodies and applicants with useful information and guidance that 
could enhance the effective handling of requests for access to information185. As regards the 
right  of  access  to  judicial  information,  the  Government  pledged186  to  address  the  concerns 
raised by journalists in relation to the draft new Courts Act, submitted to public consultation 
on 9 October 2023, which faced criticism for restricting the access to final judgments and the 
access to certain information about the judicial service, such as information on salaries or on 
the termination of the employment relationship of judges187.  

Some progress was made to introduce safeguards for the protection of journalists.  The 
2023  Rule  of  Law  Report  recommended  Slovenia  to  ‘take  forward  the  process  of  adopting 
non-legislative  safeguards  and  start  the  legislative  process  in  relation  to  the  protection  of 
journalists,  particularly  online,  taking  into  account  European  standards  on  the  protection  of 
journalists’188. The draft new Mass Media Act is expected to introduce a specific protection 
for journalistic sources as well as the prohibition to install intrusive surveillance software on 
devices  used  by  journalists189.  In  addition,  the  proposal  would  introduce  safeguards  against 
hate  speech  to  foster  the  protection  of  journalists  targeted  by  smear  campaigns190.  From  a 

state-owned enterprises that would be covered by the transparency requirements, Information received from 
AKOS, the Association of Journalists, Peace Institute and the National NGO umbrella network (CNVOS) in 
the context of the country visit to Slovenia. 

183  The Access  to  Public  Information Act  provides  for  a  set  of  targeted  exceptions  on  the  grounds  of  which 
access to certain information can be limited and ensures that requesters can rely on appeal mechanisms to 
challenge  public  bodies’  decisions  to  refuse  or  dismiss  a  request  of  access,  2023  Rule  of  Law  Report, 
Country Chapter on the rule of law situation in Slovenia, p. 27. 

184  In particular, pursuant to the latest data available, in 2022 the total number of complaints decreased by 16% 
compared to 2021 (Information Commissioner (2022), 2022 Annual Report, p. 35); Input from Slovenia for 
the 2024 Rule of Law Report, p. 14. 

185  Input from Slovenia for the 2024 Rule of Law Report, p. 14; Information Commissioner (2023), Collection 

of Cases with Simple Answers to Frequently Asked Questions.  

186  Work  is  ongoing  to  revise  the  original  proposal  with  the  aim  to  ensure  that  access  to  court  decisions  is 
always allowed unless sensitive information needs to the protected, information received in the context of 
the country visit to Slovenia from the Ministry of Justice.  

187  In particular, the draft new Article 117 of the Courts Act envisaged that final judgments would not be public 
information  and  that  access  to  these  acts  is  not  possible  even  upon  request,  while  the  proposal  to  amend 
Article 37 of the Judicial Service Act and Articles 39 and 40 of the Courts Act would render not accessible to 
the  public  information  on  judges  which  is  public  for  all  other  public  officials,  including  members  of 
Parliament  and  Ministers.  Association  of  Journalists,  Comments  by  the  Association  of  Journalists  on  the 
proposed amendments to the Courts Act and the Judicial Service Act, November 2023.  

188  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, p. 2. The 2023 Report 
found that in relation to the 2022 recommendation, some progress was made on establishing non-legislative 
safeguards and no progress on establishing legislative safeguards to protect journalists. 

189  Draft new Mass Media Act, Article 6, as confirmed by information received from the Ministry of Culture in 

the context of the country visit to Slovenia. 

190  Draft  new  Mass  Media  Act,  Article  34.  However,  although  the  new  envisaged  rules  were  generally 
considered  a  positive  step  forward  as  they  would  ensure  greater  legal  certainty  in  the  application  of  the 
safeguards  against  hate  speech,  some  stakeholders  expressed  reservations  with  respect  to  the  lack  of  the 
inclusion of specific sanctions for actors allowing the publication of hate speech as well as with respect to 

27 

 
 
 
more  general  perspective,  a  less  hostile  climate  towards  journalists  confirms  the  positive 
trend already reported last year191, with the media community facing decreased pressure from 
the Government and operating in a safer environment192. No new alerts were reported by the 
Council  of  Europe’s  Platform  to  promote  the  protection  of  journalism  and  safety  of 
journalists193  and  four  incidents,  one  of  which  related  to  verbal  attacks  on journalists,  were 
registered by the Mapping Media Freedom platform since the publication of the 2023 Rule of 
Law  Report  -  a  significant  decrease  compared  to  2022  when  12  incidents  were  reported194. 
This  declining  trend  is  also  confirmed  by  the  number  of  attacks  on  journalists  reported  at 
national  level  by  the  Association  of  Journalists,  which  were  15  in  2023,  as  opposed  to  20 
cases  reported  in  2022  and  33  cases  reported  in  2021195.  However,  stakeholders  pointed  to 
SLAPPs and cases of online harassment, including by politicians196, as a persisting source of 
concern  for  media  professionals197.  In  light  of  the  developments  so  far,  some  progress  to 
introduce  safeguards  for 
the 
recommendation made in the 2023 Rule of Law report. 

journalists  was  made 

the  protection  of 

to  address 

The Government is working on a new framework for public contributions to the media. 
The  economic  crisis  of  the  media  sector  and  the  deterioration  of  journalists’  working 
conditions remain issues of major concern198. Stakeholders stressed that the constant decrease 
of  revenues,  the  shrinking  of  newsrooms’  staff  and  a  general  trend  of  divestment  from  the 
media  market  negatively  affect  media  pluralism  as  they  lead  to  a  shortage  of  pluralistic 
content and a decrease of the quality of the offering both at national and local level199. In this 

the  effective  implementation of  the relevant rules,  which would  rely  mainly  on  the  initiative  of  the  media 
inspector rather than through the judicial system, Contribution from the Human Rights Ombudsman for the 
2024 Rule of Law Report, pp. 8-9; Information received in the context of the country visit to Slovenia from 
the Union of Journalists and the Association of Journalists.  

191  2023 Rule of Law Report, Country Chapter on the rule of law situation in Slovenia, pp. 27-29. 
192  Contribution  from  Liberties  (Peace  Institute)  for  the  2024  Rule  of  Law  Report,  p.  16,  as  confirmed  by 
information received in the context of  the country visit to Slovenia from the Association of Journalists, the 
Union of Journalists, Peace Institute and the National NGO umbrella network (CNVOS). 

193  Council of Europe, Platform to promote the protection of journalism and safety of journalists, Slovenia. 
194  The  other  incidents  related  to  cases  of  censorship  and  attacks  to  property  of  journalists,  Mapping  Media 

Freedom, Slovenia country profile. 

195  2024 Media Pluralism Monitor, country report for Slovenia, p. 12. Since 2021, the Association of Journalists 
manages the Report an attack online platform, which is intended for reporting cases of physical and verbal 
attacks and threats against journalists in Slovenia, 2023 Rule of Law Report, Country Chapter on the rule of 
law situation in Slovenia, pp. 28-29. 

196  2024 Media Pluralism Monitor, country report for Slovenia, p. 13. 
197  2024  Media  Pluralism  Monitor,  country  report  for  Slovenia,  pp.  8  and  12;  Contribution  from  Liberties 
(Peace Institute) for the 2024 Rule of Law Report, pp. 17-18, as confirmed by  information received in the 
context of the country visit to Slovenia from the Association of Journalists, the Union of Journalists, Peace 
Institute and the National NGO umbrella network (CNVOS). 

198  2024  Media  Pluralism  Monitor,  country  report  for  Slovenia,  p.  8  and  15.  According  to  a  survey  on  the 
working  and  living  conditions  of  journalists  and  other  media  workers,  carried  out  by  the  University  of 
Ljubljana’s Centre for Social Communication Research of the Faculty of Social Sciences, on average media 
workers did not have an employment contract for 1/3 of their working life and 34% of them are dissatisfied 
with their salary. Moreover, 85% of media workers already looked for other jobs, with 2/3 of them seeking 
employment outside of journalism, University of Ljubljana’s Centre for Social Communication Research of 
the Faculty of Social Sciences (2023), Report on the survey Empowering the trade union for the drafting of a 
new collective agreement, as confirmed by information received from the Union of Journalists in the context 
of the country visit to Slovenia.  

199  Contribution  from  the  Human  Rights  Ombudsman  for  the  2024  Rule  of  Law  Report,  p.  21;  Information 
received  in  the  context  of  the  country  visit  to  Slovenia  from  the Association  of  Journalists,  the  Union  of 
Journalists, , and Peace Institute & National NGO umbrella network (CNVOS). 

28 

 
 
respect, the draft new Mass Media Act would envisage the introduction of a new framework 
for  the  financial  support  to  the  media  sector,  which  would  no  longer  be  based  only  on 
measures  of  co-financing  of  media  programmes.  Under  the  new  framework,  it  would  be 
possible to adopt further initiatives aimed at ensuring the existence and development of free 
and  pluralistic  media  and  the  production  of  quality  content200.  However,  stakeholders 
maintain  that  more  public  resources  need  to  be  allocated  to  effectively  support  the  media 
sector and professional journalism201. 

IV.  OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES 

Slovenia has a parliamentary system of government where only the National Assembly (the 
first  chamber  of  Parliament),  and  not  the  National  Council  (the  second  chamber  of 
Parliament), adopts laws202. Draft legislation can be tabled by the Government, any member 
of Parliament (the National Assembly), the National Council or at least  5 000 ‘voters’. The 
Constitutional Court carries out ex post constitutional review, including in concrete cases on 
the basis of a constitutional complaint. In addition to the justice system and other bodies, the 
Human Rights Ombudsperson and the Advocate of the Principle of Equality (which functions 
as the equality body) are also in charge of the protection of the rights of individuals. 

The  share  of  laws  adopted  by  urgent  procedure  in  Parliament  decreased  while  the 
duration  of  public  consultations  on  draft  laws  remains  generally  shorter  than  the 
recommended period. In 2023, the share of laws adopted by urgent procedure decreased to 
28%, while remaining  high compared to  recent  years  (outside the pandemic)203. As regards 
the Government’s public consultations on draft laws, their duration remained mostly shorter 
than  the  recommended  30-day  period204.  In  2023,  the  Supreme  Court  reported  on 
shortcomings  in  the  preparation  or  coordination  of  legislative  proposals,  particularly  short 
deadlines for comments which made it difficult to prepare appropriate responses to proposed 
solutions,  often  involving  substantive  issues205.  Furthermore,  in  the  draft  legislative 

200  For example, under the new framework, initiatives might be taken to support the creation of media startups, 
subsidise shortage media professions, or support the development of new media content or new distribution 
channels to the public, draft new Mass Media Act, Article 49, as confirmed by information received in the 
context of the country visit to Slovenia from the Ministry of Culture.  

201  In  particular,  stakeholders  stressed  that,  besides  the  introduction  of  a  new  legal  framework  regulating  the 
state contributions to the media sector, there  is a need to increase the financial support and ensure a more 
structural and systematic intervention, including at the local and regional level, information received in the 
context of the country visit to Slovenia from AKOS, the Association of Journalists, the Union of Journalists, 
the Peace Institute and the National NGO umbrella network (CNVOS). 

202  Judgment  of  the  Constitutional  Court  of  22  October  2008,  U-I-295/07. According  to  the  Constitution,  the 
National Council has the right to veto adopted legislation which has to be voted again by absolute majority 
in the National Assembly to be adopted. 

203  35%  in  2022, 17%  in  2021, 32%  in  2020, 18%  in  2019, and  20%  in 2018.  Input from  Parliament  for  the 

2024 Rule of Law Report.  
204  Counter  of  violations  of 

the  2009  Parliament  Resolution  on 

the  normative  activity,  CNVOS: 
https://www.cnvos.si/stevec-krsitev/. After taking office on 1 June 2022 until 8 January 2024, data gathered 
through  this  monitoring  mechanism  revealed  that  the  current  Government  did  not  respect  provisions 
concerning  public  consultations  in  64%  of  the  cases.  The  previous  Government,  in  office  from  13  March 
2020  until  1  June  2022,  did  not  respect  the  relevant  provisions  in  70%  of  the  cases.  In  2009,  Parliament 
adopted a Resolution on Legislative Regulation, which provided for a minimum period of 30 to 60 days for 
consultations with the public. The Government’s Rules of Procedure were later also amended to include the 
provision related to the minimum period for public consultations. Contribution from Liberties on Slovenia 
for the 2024 Rule of Law Report, p. 19. 

205  Reported in the input from the Supreme Court for the 2024 Rule of Law Report, p. 6. 

29 

 
 
proposals,  the  Government  often  inadequately  estimated  the  financial  consequences  of  the 
proposed amendments related to the operation of the judiciary which were not reflected in a 
corresponding  increase  in  the  relevant  budget206.  The  number  of  participants  from  civil 
society that attended the sessions of parliamentary working bodies as well as the number of 
their documents submitted to Parliament significantly increased207.  

Parliament  continued  discussing  the  constitutional  amendments  to  reduce  the 
Constitutional  Court’s  considerable  caseload  by  transferring  certain  types  of  cases  to 
administrative  courts.  As  noted  in  the  2023  Rule  of  Law  Report,  for  several  years,  the 
Constitutional  Court  has  been  raising  concerns  about  its  considerable  caseload,  which 
prevents  the  Court  from  dedicating  more  attention  to  the  constitutionally  most  far-reaching 
cases208.  In  view  of  these  challenges,  in  2023  the  average  time  needed  to  conclude  a 
constitutionality review was nearly 600 days while constitutional complaints took around 540 
days  on  average209.  While  there  were  notable  improvements  in  reduction  of  oldest  pending 
cases  at  the  end  of  2023,  a  few  cases  lodged  in  2019  remained  pending210.  In  total,  the 
backlog decreased considerably (by 17%), also due to a lower number of incoming cases (by 
10%)211.  In  October  2023,  the  Parliament’s  Constitutional  Committee  discussed  the 
constitutional amendments submitted by the Government in May 2023, which would reduce 
the Constitutional Court’s caseload and the constitutional revision procedure will continue212. 
The  Constitutional  Court  in  its  submission  to  Parliament  welcomed  and  supported  the 
proposed  constitutional  changes213.  However,  the  Judicial  Council  expressed  concerns 

206  Input from the Supreme Court for the 2024 Rule of Law Report, p. 6. According to the parliamentary Rules 
of Procedure, every draft law needs to contain an assessment of financial impact of the proposed legislation.  
207  Number of participants attending the sessions of parliamentary working bodies: 1 444 in 2023, 899 in 2022, 
1 253 in 2021, and 1 155 in 2020. Number of documents submitted by the civil society: 336 in 2023, 237 in 
2022, 203 in 2021, and 461 in 2020. Input from Parliament for the 2024 Rule of Law Report, pp. 19-20. 
  To also be noted that in Slovenia, only 18% 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 investment protection. Figure 
56, 2024 EU Justice Scoreboard. 

208  Among  the  possible  solutions,  a)  setting  into  the  Constitution  a  reduced  list  of  privileged  bodies  that  can 
request  a  constitutional  review,  b)  introducing  a  filtering  mechanism  for  constitutional  complaints,  and  c) 
transferring the review of legality of bylaws to the administrative courts, have been discussed. 2023 Rule of 
Law Report, Country Chapter on the rule of law situation in Slovenia, p. 30. 

209  Constitutional Court, Report for 2023, 12 June 2024, p. 134. 
210  These  include  cases  which  are  awaiting  the  decision  of  the  Court  of  Justice  of  the  EU  on  a  request  for  a 
preliminary  ruling.  On  31  December  2023,  a  total  of  154  cases  older  than  two  years  remained  pending. 
Information received from the Constitutional Court in the context of the country visit to Slovenia. This is a 
notable  improvement,  as  at  the  end  of  2021,  there  were  553  cases  pending  that  were  up  to  5  years  old. 
Constitutional Court, Report for 2023, 12 June 2024. 

211  End  2023,  the  Court  had  1931  pending  cases  (2325  end  2022).  Constitutional  Court,  Report  for  2023,  12 

June 2024, p. 114. 

212  Among the envisaged changes are setting into the Constitution the current list of privileged bodies that can 
request constitutional review (and are currently set in several laws) the gradual transfer of review of local 
government  acts  (and  jurisdiction  disputes  between  local  government)  and  of  spatial  planning  acts  to  the 
administrative  courts  (this  would  be  done  through  a  constitutional  law  adopted  by  two  third  of  deputies 
present),  and  allowing  the  Constitutional  Court  to  select  constitutional  complaints  and  initiatives  for 
constitutional review based on guidelines defined in the Constitution.  The draft constitutional amendments 
list  the  ‘importance  of  the  constitutional  issue’  and  ‘the  gravity  of  the  consequences  of  human  rights 
violations’  for  the  complainant  or  subject  submitting  the  initiative  for  constitutional  review.  2023  Rule  of 
Law Report, Country Chapter on the rule of law situation in Slovenia, p. 30. 

213  Constitutional  Court,  Opinion  of  the  Constitutional  Court  regarding  the  amendments  to  articles  160,  161, 

162 of the Constitution, 25 September 2023. 

30 

 
 
regarding the additional caseload that would be brought by the envisaged transfer of certain 
types of cases to administrative courts214. On 22 April 2024, the Constitutional Court called 
for amendments to the Constitutional Court Act to introduce a mechanism allowing the Court 
to establish the incompatibility of office of its members215. On 24 May 2024, the Commission 
the 
initiated  misdemeanour  proceedings  against 
for 
Constitutional Court judge due to a failure to report in relation to business restrictions216. 

the  Prevention  of  Corruption 

On  1  January  2024,  Slovenia  had  five  leading  judgments  of  the  European  Court  of 
Human  Rights  pending  implementation,  an  increase  of  one  compared  to  the  previous 
year217.  At  that  time,  Slovenia’s  rate  of  leading  judgments  from  the  past  10  years  that 
remained pending was only at 14% (compared to 13% in 2023), and the average time that the 
judgments had been pending implementation was 1 year and 2 months (compared to 1 year 
and 5 months in 2023)218. As regards the respect of payment deadlines, on 31 December 2023 
there were no cases in total awaiting confirmation of payments (compared to 1 in 2022)219. 
On 1 July 2024, the number of leading judgments pending implementation had decreased to 
4220. 

The Human Rights Ombudsperson raised concerns regarding the draft amendments to 
the act on its functioning. The Human Rights Ombudsperson is the National Human Rights 

214  Judicial Council, Opinion of the Judicial Council regarding the amendments to articles 160, 161, 162 of the 

Constitution, 25 September 2023. 

215  This  issue  came  up  in April  2024  following  uncertainties  regarding  the  existing  framework  when  it  was 
reported that one of the Constitutional Court members exercised ancillary professional activities in academia 
as a sole trader (‘samostojni podjetnik  - s.p.’). The Constitutional Court suggested a mechanism similar to 
the one in the European Court of Human Rights, where the judges themselves vote with a qualified majority 
on the alleged incompatibility of office of a judge. RTV Slovenia, The Ministry of Justice will examine the 
possibility  of  amending  the  Constitutional  Court Act  due  to  the  Jaklič  case,  23 April  2024.  In  2022,  the 
Supreme Court ruled that a regular court judge could not exercise ancillary professional activities as a sole 
trader  and  her  position  as  a  judge  was  terminated.  Supreme  Court,  Judgment  of  25  October  2022, 
ECLI:SI:VSRS:2022:U.5.2022.27.  

216  CPC,  Press  release:  “Due  to  the  failure  of  the  constitutional  judge  to  report  on  business  restrictions,  the 
Commission initiated a misdemeanor procedure”, 20 June 2024. On 29 April 2024, the CPC transmitted the 
complaint  it  received  regarding  the  alleged  incompatibility  to  Parliament,  stating  the  Commission  is  not 
competent  in  that  matter  and  quoting  the  Supreme  Court  judgment  mentioned  above.  CPC,  Press  release: 
CPC  transmits  to  Parliament  the  complaint  regarding  Constitutional  Court  member’s  incompatibility,  29 
April  2024.  However,  Parliament  declared  it  is  not  competent  either  and  the  CPC  subsequently  asked  the 
Ministry of Justice for a non-binding opinion on which body has the  competence to decide on the alleged 
incompatibility  of  the  judge.  CPC,  Press  release:  CPC  responds  regarding  the  competence  in  the  case 
involving  a  constitutional  court  judge,  8  May  2024.  Ministry  found  a  legal  gap  and  stated  that  the  CPC 
should, temporarily, fill it in. 

217  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. 

218  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. 

219  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.   

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

31 

 
 
Institution, accredited with A-Status221. After a public consultation in 2023, in February 2024, 
the Ministry of Justice transmitted to the Ombudsperson the revised draft amendments to the 
Human  Rights  Ombudsperson’s  Act.  However,  unlike  the  draft  law  subject  to  the  public 
consultation, the revised amendments contain, in the Ombudsperson’s view, some provisions 
that  raise  concerns222.  In  particular,  the  envisaged  transfer  of  the  appointment  of  the 
Ombudsperson from Parliament223 to the President of the Republic would not be appropriate 
in  the  Ombudsperson’s  view,  as  the  institution  reports  to  Parliament,  which  is  the  case  for 
parliamentary ombudspersons224. Furthermore, contrary to the UN recommendation, the draft 
amendments do not explicitly establish the Ombudsperson’s power to suggest that Slovenia 
ratifies or accedes to international human rights instruments225. Finally, the draft amendments 
do  not  envisage  that  the  Ombudsperson  would  become  the  independent  mechanism  to 
promote,  protect,  and  monitor  implementation  of  the  United  Nations  Convention  on  the 
Rights  of Persons with Disabilities (UNCRPD)  – a responsibility that the Ombudsperson is 
already  partly  exercising  and  would  be  ready  to  take  over  if  sufficient  resources  would  be 
granted to fulfill this task226. In 2023, the Ombudsperson issued 86 new recommendations (84 
in  2022),227.  In  addition,  the  Ombudsperson  acting  in  the  capacity  of  National  Prevention 
Mechanism  issued  further  578  recommendations  to  various  institutions  (571  in  2022)228.  In 
2023, 
relevant  past 
recommendations  that  remain  either  unimplemented  or  partially  implemented  (150  in 
2022)229.  At  the  end  of  2023,  the  Advocate  of  the  Principle  of  Equality  operated  with  27 
employees and a budget of over EUR 1.8 million, with additional funds allocated for the EU 
project “Let’s face discrimination”. In 2023, the Advocate issued 84 recommendations in the 
framework  of  different  procedures,  to  address  the  issue  of  discrimination230.  The  Advocate 
raised concerns about the reduction of its budget for 2024 to EUR 1.58 million and protested 
against removal of funds dedicated to research about discrimination and for awareness raising 
about discrimination231.  

the  Ombudsperson  highlighted  approximately  80  especially 

The  situation  of  civil  society  has  further  improved,  while  some  challenges  remain. 
Continuing the trend mentioned in the 2023 Rule of Law Report, the operating space for civil 
society  saw  further  improvements,  particularly  as  regards  the  general  approach  of  the 

221  Accreditation by the Global Alliance of National Human Rights Institutions (GANHRI).  
222  Information received from the Human Rights Ombudsperson in the context of the country visit to Slovenia. 
According to the Government, the discussion on amendments to the Ombudsperson Act is still ongoing and 
stakeholders have different views (also constitutional ones) concerning the Ombudsperson`s positions, this 
being  the  result  of  wide  and  long  public  consultation.  Written  contribution  from  the  Government  in  the 
context of the country visit to Slovenia. 

223  Currently, the Slovenian Human Rights Ombudsperson is elected by Parliament with two third majority of 

all its members. Article 12, Human Rights Ombudsperson’s Act. 

224  Information received from the Human Rights Ombudsperson in the context of the country visit to Slovenia. 
225  This  was  one  of  the  recommendations  from  GANHRI  Sub-Committee  on  Accreditation  (SCA)  Report, 

December 2020, p. 24. Contribution from ENNHRI-Slovenia for the 2024 Rule of Law Report, p. 4. 

226  Information received from the Human Rights Ombudsperson in the context of the country visit to Slovenia; 

Contribution from ENNHRI-Slovenia for the 2024 Rule of Law Report, p. 14. 

227  Summary of the Human Rights Ombudsperson’s work in 2023, p. 8. 
228  Summary of the Human Rights Ombudsperson’s work in 2023, p. 25. 
229  Summary of the Human Rights Ombudsperson’s work in 2023, p. 8. 
230  Input from Slovenia for the 2024 Rule of Law Report, p. 18. 
231  Input from Slovenia for the 2024 Rule of Law  Report,  p. 17; Advocate of the Principle of Equality, Press 
release: Protection against discrimination: Lobnik called on the deputies to provide funds in the budget for 
the implementation of the key tasks of the Advocate, 15 November 2023.  

32 

 
 
Government232.  However,  the  civic  space  in  Slovenia  continues  to  be  considered  as 
narrowed233.  Civil  society  organisations  (CSOs)  still  reported  concerns  about  the  attacks 
stemming  from  media  owned  by  political  parties234.  In  spring  2023,  the  Ministry  of  Public 
Administration issued a public call for funding, focused on strengthening the competences of 
CSOs  in  the  areas  of  democratic  functioning,  good  governance,  transparency  and  oversight 
over  authorities,  and  active  citizenship235.  In  January  2024,  the  new  Minister  of  Public 
Administration236 annulled the public call despite the funds having been already awarded. In 
an  open  letter,  a  number  of  CSOs  expressed  disappointment  over  the  minister’s  decision, 
which they considered could set a dangerous precedent of annulling already allocated funds 
and  would  hamper  the  functioning  of  organisations  in  the  field  of  democracy  and  civil 
rights237.  Several  of  those  CSOs  that  were  awarded  the  funds  are  preparing  legal  action 
against  the  annulment  before  the  administrative  courts238.  The  Ministry  of  Public 
Administration  explained  that  the  allocated  funds  will  remain  available  to  CSOs  but  the 
criteria how they will be disbursed are yet to be determined and could be made available to 
CSOs in all types of activities, not focused only on CSO’s in the area of democracy and civil 
rights239. On June 7, 2024, the Ministry of Public Administration published the Public Tender 
for  the  Development  and  Professionalization  of  Non-Governmental  Organizations  and 
Volunteering  2024  -  2027.  With  the  public  tender,  the  goal  is  to  co-finance  approximately 
180 jobs in voluntary and non-governmental organizations in the following years. A total of 
EUR 12.6 million will be available as part of the public tender for jobs over a period of three 
fiscal years240. 

232  2023  Rule  of  Law  Report,  Country  Chapter  on  the  rule  of  law  situation  in  Slovenia,  p.  32;  Information 
received from the Peace Institute and CNVOS in the context of the country visit to Slovenia; Contribution 
from FRANET-Slovenia for the 2024 Rule of Law Report, p. 19. 

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

obstructed, repressed and closed. 

234  Contribution from FRANET-Slovenia for the 2024 Rule of Law Report, p. 15.  
235  Contribution from Liberties-Slovenia for the 2024 Rule of Law Report, p. 20.  
236  Following  an  alleged  conflict  of  interest  in  the  awarding of  funds  to  a  specific  CSO,  the  then  Minister  of 
Public Administration resigned in autumn 2023.  Criminal investigation into the tender process is ongoing. 
Several CSOs, including the national umbrella CSO, also called on the Minister to resign, highlighting the 
existence  of  numerous  reports  on  the  suspicious  adjustment  of  the  tender  conditions  after  the  end  of  the 
evaluation procedure, the minister’s family and friendship  ties with the recipients of the funds and unusual 
replacement  of  the  head  of  the  tender  commission  in  the  middle  of  the  procedure.  Contribution  from 
Liberties-Slovenia for the 2024 Rule of Law Report, p. 20. 

237  Contribution from Liberties-Slovenia for the 2024 Rule of Law Report, p. 20; Information received from the 

Peace Institute and CNVOS in the context of the country visit to Slovenia. 

238  Contribution from Liberties-Slovenia for the 2024 Rule of Law Report, p. 20; Information received from the 

Peace Institute and CNVOS in the context of the country visit to Slovenia. 

239  Information  received  from  the  Ministry  of  Public  Administration  in  the  context  of  the  country  visit  to 

Slovenia.  

240  Written contribution from the Government in the context of the country visit to Slovenia. Ministry of Public 
Administration,  Press  release:  A  public  tender  for  the  development  and  professionalization  of  non-
governmental organizations and volunteering has been published, 7 June 2024. 

33 

 
 
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 

Advocate of the Principle of Equality (2023), Press release: Protection against discrimination: Lobnik 
called on the deputies to provide funds in the budget for the implementation of the key tasks of the 
Advocate,  15  November  2023  https://zagovornik.si/varstvo-pred-diskriminacijo-lobnik-poslance-
pozval-naj-v-proracunu-zagotovijo-sredstva-za-izvajanje-kljucnih-nalog-zagovornika/.  

Association  of  Journalists  (2023),  Comments  by  the  Association  of  Journalists  on  the  proposed 
amendments  to  the  Courts Act  and the  Judicial  Service  Act,  https://novinar.com/novica/delo-sodisc-
posebej-sodbe-mora-ostati-javno/. 

Association  of  Slovenian  Judges  (2024),  Letter  to  the  European  Commission:  The  violation  of 
material independence of Slovenian judges may hinder the European elections 2024, 14 January 2024 
https://sodnisko-drustvo.si/wp-content/uploads/2024/01/Letter_SlovenianJudges_EU.pdf. 

Association of Slovenian Judges (2024), Protest declaration of the Slovenian judges, 4 January 2024 
https://sodnisko-drustvo.si/wp-content/uploads/2024/01/Statement-of-protest-by-Slovenian-
judges.pdf. 

Association  of  State  Prosecutors  of  Slovenia  (2024),  Letter  to  Commissioner  Reynders,  5  January 
2024. 

Centre  for  Media  Pluralism  and  Media  Freedom  (2023),  Media  pluralism  monitor  2023  –  country 
report on Slovenia. 

Centre  for  Media  Pluralism  and  Media  Freedom  (2024),  Media  pluralism  monitor  2024  –  country 
report on Slovenia. 

Commission for the Prevention of Corruption (2023), Press release: Notice of initiation of an inquiry 
against  the  Prime  Minister,  20  November  2023  https://arhiv.kpk-rs.si/blog/2023/11/20/obvestilo-o-
uvedbi-preiskave-zoper-predsednika-vlade-2/.  

Commission  for  the  Prevention  of  Corruption  (2023),  Press  release:  Health  analysis  highlighted  a 
number  of  risks  for  both  corruption  and  integrity  violations,  5  July  2023  https://arhiv.kpk-
rs.si/blog/2023/07/05/analiza-v-zdravstvu-izpostavila-stevilna-tveganja-tako-za-korupcijo-kot-za-
nastanek-krsitve-integritete/. 

Commission for the Prevention of Corruption (2024), Annual report on the handling of whistleblower 
protection 
https://www.kpk-rs.si/storage/uploads/2da31be8-c433-4385-a3bf-
18f855cbfa47/Skupno-letno-poro%C4%8Dilo-o-obravnavi-k%C5%A1itev-po-ZZPri-2024.pdf. 

cases 

2023 

for 

Commission  for  the  Prevention  of  Corruption  (2024),  First  reporting  after  the  introduction  of  the 
PRTR:  good  response  and  room  for  improvement  https://www.kpk-rs.si/sl/novice/vse-novice/ob-
prvem-porocanju-po-uvedbi-zzpri-dobra-odzivnost-in-prostor-za-izboljsave. 

Commission for the Prevention of Corruption (2024), Press release: The Commission's work in 2023: 
society  lacks  accountability  and  too  much  to  look  for  bypasses  in  legislation,  27  May  2024 
https://www.kpk-rs.si/sl/novice/vse-novice/delo-komisije-v-letu-2023-v-druzbi-manjka-prevzemanje-
odgovornosti-prevec-pa-je-iskanja-obvodov-zakonodaje. 

Commission  for  the  Prevention  of  Corruption  (2024),  Press  release:  In  the  interests  of  the 
proceedings  before  the  Prosecutor's  Office  and  the  police,  the  Commission  had  to  suspend  the 
investigation  against  the  Prime  Minister,  22  January  2024  https://www.kpk-rs.si/sl/novice/vse-
novice/zaradi-interesov-postopka-pred-tozilstvom-in-policijo-je-morala-komisija-preiskavo-zoper-
predsednika-vlade-zacasno-prekiniti.  

34 

 
Commission for the Prevention of Corruption (2024), Press release: CPC transmits to Parliament the 
complaint regarding Constitutional Court member’s incompatibility, 29 April 2024 https://www.kpk-
rs.si/sl/novice/vse-novice/komisija-drzavnemu-zboru-odstopila-prijavo-v-zvezi-z-nezdruzljivostjo-
funkcij-ustavnega-sodnika. 

Constitutional  Court  (2023),  Judgment  U-I-144/19  (PART  THREE),  6  July  2023  https://www.us-
rs.si/odlocitev/?q=U-I-144%2F19&order=desc&id=120340. 

Constitutional  Court  (2023),  Judgment  U-I-772/21-37,  1  June  2023  https://www.us-rs.si/wp-
content/uploads/2023/06/U-I-772-21.pdf. 

Constitutional Court (2023), Opinion of the Constitutional Court regarding the amendments changes 
to  articles  160,  161,  162  of 
the  Constitution,  25  September  2023  https://imss.dz-
rs.si/IMiS/ImisAdmin.nsf/ImisnetAgent?OpenAgent&2&DZ-MSS-
01/f4c1bdbb1ff16e36d5ae951cf1215154085a6508158832738213db66f25f0920.  

Constitutional  Court  (2024),  Judgment  of  30  May  2024,  U-I-8/24-23  (published  on  13  June  2024) 
https://www.us-rs.si/wp-content/uploads/2024/06/U-I-8-24.pdf.  

Constitutional  Court 
content/uploads/2024/06/USRS_Letno-Porocilo_2023_w.pdf.  

(2024),  Report 

for  2023,  12 

June  2024  https://www.us-rs.si/wp-

Consultative  Council  of  European Judges (CCJE)  (2024),  Opinion of  the  CCJE  Bureau  following a 
Protest  Declaration  of  the  Slovenian  Association  of  Judges  concerning  the  failure  to  enforce  a 
decision  of 
the  established 
unconstitutionalities regarding substantial differences between the salaries of judges and other public 
officials,  16  February  2024  https://rm.coe.int/ccje-bureau-opinion-on-slovenia-february-2024-
/1680ae8e5c.  

the  Constitutional  Court  of  Slovenia  aimed  at  remedying 

Consultative  Council  of  European  Prosecutors  (CCPE)  (2024),  Opinion  of  the  CCPE  Bureau 
following a letter of the Deputy Prosecutor General and Temporary Head of the State Prosecutor's 
Office of Slovenia, acting on behalf of the Slovenian Prosecutor's Office and Slovenian Association of 
State Prosecutors, concerning the failure to enforce a decision of the Constitutional Court of Slovenia 
aimed at remedying the identified unconstitutionalities regarding significant disproportions between 
the  salary  grades  of  judges'  positions  compared  to  the  salary  grades  of  executive  and  legislative 
branch  functions,  18  March  2024  https://rm.coe.int/ccpe-bureau-opinion-on-slovenia-march-2024-
published-en/1680aef244.  

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

CPC  (2024),  Press  release:  “Due  to  the  failure  of  the  constitutional  judge  to  report  on  business 
restrictions,  the  Commission  initiated  a  misdemeanor  procedure”,  20  June  2024  https://www.kpk-
rs.si/sl/novice/vse-novice/komisija-je-zaradi-neporocanja-ustavnega-sodnika-o-omejitvah-poslovanja-
uvedla-prekrskovni-postopek. 

CPC  (2024),  Press  release:  CPC  responds  regarding  the  competence  in  the  case  involving  a 
constitutional  court  judge,  8  May  2024  https://www.kpk-rs.si/sl/novice/vse-novice/odziv-komisije-
glede-pristojnosti-v-primeru-ustavnega-sodnika.  

(2024),  Back 

Delo 
2024, 
for 
https://www.delo.si/novice/slovenija/znova-v-iskanje-namestnika-kpk/Delo  (2024),  The  NRC  annuls 
the  selection  for  the  second  time,  14  February  2024  https://www.delo.si/novice/slovenija/drzavna-
revizijska-komisija-ze-drugic-zavrnila-izbiro/.   

17  April 

a  CCP 

deputy, 

search 

the 

to 

Directorate-General  for  Communication  (2024),  Flash  Eurobarometer  543  on  Businesses’  attitudes 
towards corruption in the EU. 

Directorate-General  for  Communication  (2024),  Special  Eurobarometer  548  on  Citizens’  attitudes 
towards corruption in the EU.  

35 

 
Euromedia  Onwership  Monitor 
ownership.eu/findings/countries/slovenia/. 

(2023),  Slovenia  Country 

report  2022,  https://media-

European  Association  of  Judges  (2024),  Resolution  on  the  independence  of  judges  in  Slovenia,  26 
April 2024 https://www.iaj-uim.org/iuw/documents/eaj-draft-resolution-on-slovenia_warsaw-2024/   

European Centre for Press and Media Freedom, Mapping Media Freedom, Slovenia country profile. 

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

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

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

European Parliament: Flash Eurobarometer: News & Media Survey 2023. 

European Public Prosecution Office (2024), Annual Report 2023. 

Expert Group on judicial appointments (2023), Draft amendments to Articles 129, 130, 131, 132 and 
134 
https://imss.dz-
November 
6 
rs.si/IMiS/ImisAdmin.nsf/ImisnetAgent?OpenAgent&2&DZ-MSS-
01/f85f657d3df6688290c94396fc739f3570ea5b17d65c79e38096db094cfcd25d.  

Constitution, 

2023 

the 

of 

GANHRI 
https://ganhri.org/wp-content/uploads/2021/01/SCA-Report-December-2020-24012021-En.pdf.  

(2020),  Sub-Committee  on  Accreditation 

(SCA)  Report 

-  December  2020 

Government Communication Office (2023), Press release - Government adopts Recommendations for 
transparent  financing  of  advertising  with  public  funds,  Government  adopts  Recommendations  for 
transparent financing of advertising with public funds | GOV.SI). 

Government of Slovenia (2024), Second Joint Interim Report on the Implementation of the Slovenian 
Government’s Integrity and Transparency Programme in the Public Sector 2023-2026 (for the period 
1. 9. 2023 – 29. 2. 2024), 16 May 2024 https://www.gov.si/teme/integriteta/. 

Government  of  the  Republic  of  Slovenia  (2024),  Press  release  -  86th  regular  session  of  the 
Government of the Republic of Slovenia, 86th regular session of the Government of the Republic of 
Slovenia | GOV.SI).  

Information Commissioner (2022), 2022 Annual Report, LP2022.pdf (ip-rs.si). 

Information  Commissioner  (2023),  Collection  of  Cases  with  Simple  Answers  to  Frequently  Asked 
Questions https://www.ip-rs.si/fileadmin/user_upload/Pdf/razno/zdijzprirocnik.pdf. 

Journalists’  Court  of  Honour  (2015),  Rules  on  the  work  of  the  Journalists’  Court  of  Honour 
https://razsodisce.org/o-ncr/na-podlagi-cesa-ncr-deluje/pravilnik-o-delu-novinarskega-castnega-
razsodisca/. 

Journalists’  Court  of  Honour 
https://razsodisce.org/o-ncr/na-podlagi-cesa-ncr-deluje/novinarski-kodeks/.  

(2019),  Codes  of  Ethics 

for  Journalists  of  Slovenia 

Journalists’ Court of Honour (2024), Judgments adopted https://razsodisce.org/category/razsodba/. 

Judicial Council (2023), Opinion of the Judicial Council regarding the amendments to articles 160, 
161, 
https://imss.dz-
rs.si/IMiS/ImisAdmin.nsf/ImisnetAgent?OpenAgent&2&DZ-MSS-
01/b40579029ba185aec8328c35b9675a35ef0dfdb361cc1a8f59db2e6d4e9b7d16.  

Constitution, 

September 

2023 

162 

the 

25 

of 

Ministry  of  Public  Administration  (2024),  Press  release:  A  public  tender  for  the  development  and 
professionalization of non-governmental organizations and volunteering has been published, 7 June 
2024  https://www.gov.si/novice/2024-06-07-objavljen-je-javni-razpis-za-razvoj-in-profesionalizacijo-
nevladnih-organizacij-in-prostovoljstva/.  

36 

 
National Review Commission (2024), Annual Report 2023. 

Necenzurirano  (2024),  House  searches  in  case  of  overpaid  court  building.  Today,  the  National 
Bureau of Investigation (NPU) conducts house searches for the controversial purchase of a building 
on  Litijska  cesta  in  Ljubljana,  https://necenzurirano.si/clanek/aktualno/hisne-preiskave-v-zadevi-
preplacana-sodna-stavba-1266619. 

Parliament  (2023),  Recommendation  to  the  Government  of  the  Republic  of  Slovenia  on  the  Fight 
against Corruption in the Republic of Slovenia, 16 November 2023 https://www.uradni-list.si/glasilo-
uradni-list-rs/vsebina/2023-01-3411/priporocilo-vladirepublike-slovenije-v-zvezi-z-bojem-proti-
korupciji-v-republiki-sloveniji.  

Reporters Without Borders (2024), 2024 World Press Freedom Index. 

RTV (2024), Administrative Court dismisses Prime Minister Golob's lawsuit over the decision of the 
CPC,  5  April  2024  https://www.rtvslo.si/slovenija/upravno-sodisce-zavrglo-tozbo-premierja-goloba-
glede-odlocitve-protikorupcijske-komisije/704009. 

RTV (2024), Prime Minister Golob sent the resignation letter of Minister Švarc Pipan to Parliament; 
the  Government  dismissed  Igor  Šoltes,  15  February  2024  https://www.rtvslo.si/slovenija/premier-
golob-v-dz-poslal-odstopno-izjavo-ministrice-svarc-pipan-vlada-razresila-igorja-soltesa/698389.  

RTV 
https://www.rtvslo.si/slovenija/rtv-slo-vecina-novinarjev-panorame-sprejela-pogodbe/696677. 

SLO:  Most 

journalists 

Panorama 

(2024), 

accept 

RTV 

contracts, 

RTV  Slovenia  (2024),  The  Ministry  of  Justice  will  examine  the  possibility  of  amending  the 
Constitutional 
2024 
https://www.rtvslo.si/slovenija/ministrstvo-bo-zaradi-primera-jaklic-preucilo-moznost-dopolnitve-
zakona-o-ustavnem-sodiscu/706012.  

Jaklič 

Court 

April 

case, 

due 

Act 

the 

23 

to 

Slovenia (2024), Resolution on the National Programme for the Prevention and Suppression of Crime 
2024-2028 (RENPPZK24-28) https://pisrs.si/pregledPredpisa?id=RESO156. 

Specialised State Prosecution Office (2024), 2023 Report on the operations of the Specialised Public 
Prosecutor’s  Office  of  the  Republic  of  Slovenia  –  key  highlights’,  press  release  21  February  2024, 
https://www.dt-rs.si/158/poro%C4%8Dilo-o-poslovanju-specializiranega-dr%C5%BEavnega-
to%C5%BEilstva-republike-slovenije-za-leto-2023-klju%C4%8Dni-poudarki  

Specialised State Prosecution Office (2024), Annual Report 2023. 

STA (2023), Broadcaster management withdraws Constitutional Court petition, 24 November 2023 
https://english.sta.si/3239875/broadcaster-management-withdraws-constitutional-court-
petition?q=broadcast,manag,withdraw,constitut,court,petit. 

STA  (2023),  National  Council  opts  for  constitutional  review  of  two  laws,  6  December  2023 
https://english.sta.si/3244384/national-council-opts-for-constitutional-review-of-two-
laws?q=nation,council,opt,,constitut,review,,two,law. 

(2023), 

STA 
ethnic  minority 
https://english.sta.si/3240798/rtv-to-get-more-funds-for-ethnic-minority-programmes.  

get  more 

funds 

RTV 

for 

to 

programmes, 

STA  (2024),  Public  broadcaster  RTV  Slovenia  in  the  red  last  year,  23  February  2024 
https://english.sta.si/3271707/public-broadcaster-rtv-slovenija-in-the-red-last-year.  

STA  (2024),  Zvezdan  Martić  resigns  as  general  manager  of  RTV  Slovenija,  28  May  2024 
https://english.sta.si/3305709/zvezdan-martic-resigns-as-general-manager-of-rtv-slovenija?q=rtv. 

State  Attorney’s  Office  (2024),  Press  release:  Support  to  judges  and  state  prosecutors,  4  January 
2024 https://www.dodv-rs.si/novica/podpora-kolegom-sodnikom-in-drzavnim-tozilcem/.  

Supreme  Court 
https://www.sodnapraksa.si/?q=pravica%20do%20zasebnosti&database%5bSOVS%5d=SOVS&data

(2022),  Judgment  of  25  October  2022,  ECLI:SI:VSRS:2022:U.5.2022.27 

37 

 
base%5bIESP%5d=IESP&_submit=i%C5%A1%C4%8Di&order=changeDate&direction=desc&rows
PerPage=20&page=3&id=2015081111462667.  

Supreme Court (2023),  Press release: The judiciary needs a single judge more than changes to the 
Constitution  regarding 
the  Judicial  Council,  30  November  2023 
https://www.sodisce.si/vsrs/objave/2023113012014766/.  

the  composition  of 

Supreme Court (2024),  Press release: Notice to court users on the work of courts during protest of 
judges, 6 February 2024 https://www.sodisce.si/vsrs/objave/2024020615134909/.  

Supreme Court (2024), Press release: Notice to court users on the ending of the warning protest of 
judges, 24 January 2024 https://www.sodisce.si/vsrs/objave/2024012409380545/.  

Supreme  Court  (2024),  Press  release:  Supreme  Court  judges  support  the  efforts  to  implement  the 
2024 
Court 
Constitutional 
https://www.sodisce.si/vsrs/objave/2024020714303035/.  

judgment, 

February 

7 

Supreme  State  Prosecution  Office  (2024),  Press  release:  Implementation  of  the  constitutional 
decision  with  a  special  intervention  act,  5  April  2024  https://www.dt-rs.si/158/uresni%C4%8Ditev-
ustavne-odlo%C4%8Dbe-s-posebnim-interventnim-zakonom.   

The  Slovenia  Times 
https://sloveniatimes.com/40475/parliament-launches-inquiry-into-pms-firm-party.  

(2024),  Parliament 

launches 

inquiry 

into  PM’s 

firm,  party 

International 
Transparency 
https://www.transparency.org/en/cpi/2023/index/svn. 

(2024), 

Corruption 

Perceptions 

Index 

2023, 

Transparency International Slovenia (2024), Corruption Perceptions Index 2023, CPI 2023: Again 
without progress in anti-corruption in Slovenia https://www.transparency.si/novica/cpi-2023/.    

Union  of  Journalists  (2022),  The  management  of  RTV  should  withdraw  from  the  proposed 
amendments  to  the  statutes,  https://sindikat-novinarjev.si/vodstvo-rtv-naj-od-predlaganih-sprememb-
statuta-odstopi/. 

University  of  Ljubljana’s  Centre  for  Social  Communication  Research  of  the  Faculty  of  Social 
Sciences (2023), Report on the survey Empowering the trade union for the drafting of a new collective 
agreement,  https://sindikat-novinarjev.si/odgovornost-do-javnosti-za-novinarje-in-medijske-delavce-
najpomembnejsi-vidik-njihovega-dela/. 

38 

 
 
Annex II: Country visit to Slovenia 

The Commission services held virtual meetings in February and March 2024 with: 

•  Agency for Communication Networks and Services (AKOS) 
•  Association of Journalists  
•  Bar Association 
•  Business association: Advantage Austria 
•  Commission for the Prevention of Corruption 
•  Constitutional Court 
•  Court of Audit 
•  Faculty of Social Sciences (Prof. dr. Marko Milosavljević) 
•  Human Rights Ombudsperson  
•  Judges’ Association  
•  Judicial Council 
•  Ministry of Culture  
•  Ministry of Justice 
•  Ministry of Public Administration  
•  Ministry of the Interior 
•  National  Bureau  of  Investigation  (NPU)  and  General  Police  Directorate  (Economic 

Crime division)  

•  National NGO umbrella network (CNVOS) 
•  National Review Commission 
•  Parliament Secretariat 
•  Peace Institute  
•  Radio-television Slovenia (RTV): Council (President) 
•  Radio-television Slovenia (RTV): Management Board (President) 
•  State Attorney’s Office 
•  State Prosecution (acting State Prosecutor General, Supreme State Prosecution Office, 

Specialised State Prosecution Office) 

•  State Prosecutorial Council 
•  Supreme Court 
•  Transparency International Slovenia 
•  Union of Slovenian Journalists 

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

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

39 

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

•  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 

40