This overview chapter synthesises the study's main findings and policy recommendations for advancing the just transition in Slovenia's Savinjsko-Šaleška (SAŠA) and Zasavska coal regions. Chapter 2 outlines the economic, social and environmental performance of both regions, drawing on quantitative evidence and diagnostic assessment of transition outcomes. Chapter 3 examines the institutional policy framework and enabling conditions required to support the coal phase-out, proposing strategies to strengthen governance, innovation ecosystems, labour markets and infrastructure. Finally, Chapter 4 highlights priorities to accelerate implementation, and proposes policy actions to reinforce governance frameworks that support both project competitiveness and community well-being during the transition period beyond 2027. Chapter 5 presents an action plan that operationalises a selected set of priority recommendations, identified through stakeholder consultation. The action plan sets out practical steps, responsible actors and indicative timelines, aligned with existing institutional and financial frameworks. Taken together, these chapters provide evidence-based guidance for policymakers, regional authorities and stakeholders committed to ensuring that Slovenia's coal transition delivers lasting benefits for residents, communities and the broader economy.
Mining Regions and Cities in SAŠA and Zasavska, Slovenia
Coal mining has shaped the identity and economy of Zasavska and SAŠA, with both regions today navigating a transition to a post-coal future.
Coal has shaped the economic and social fabric of Slovenia's Zasavska region and SAŠA subregion for over a century. Currently, the two coal regions find themselves at different stages of transition (see Table 1.2), each offering valuable lessons:
Zasavska region, Slovenia's smallest statistical region, began closing coal mines in 1994 and completed the closure of coal-based energy production in 2014. This early transition was challenging, but positioned the region to rebuild. The region lost around 5 000 jobs between 2000 and 2019, and socio-economic metrics remain below national averages. In 2023, Zasavska’s gross domestic product (GDP) per capita was EUR 16 456 (euros). This was among the lowest in Slovenia – 13% below Slovenia’s average and about 25% below the average of European Union (EU) coal regions. The unemployment rate in Zasavska was 4.7% (the second-highest nationally). However, recent indicators point to stabilisation. Population decline has levelled off in recent years (‑1% over the last decade) and mental-health outcomes show some resilience, with a depression prevalence of 6.2% (vs. 7.5% nationally).
SAŠA subregion, by contrast, continues to operate an active coal sector and thus remains in the preparatory phase of transition. The Velenje coal mine and Šoštanj thermal power plant directly employ 2 177 workers, with an additional estimated 1 500 indirect jobs through supply chains. In 2023, the mine produced 2.4 million tonnes of lignite, contributing to the GDP per capita of the broader Savinjska region (EUR 26 110), which ranked third nationally. This current economic position provides SAŠA with a relevant window of opportunity, and greater resources and workforce capacity to invest in economic diversification before the expected mine closure in 2033. Gender disparities in workforce participation (comprising 44.7% female workers, versus 45.5% in Zasavska and 43.4% nationally) present both a challenge and an opportunity for inclusive skill-development programmes. With 8.2 graduates per 1 000 people, the region's tertiary education attainment compares favourably with Zasavska's 6.8 graduates, although slightly below the national average of 8.3 graduates.
A global trend in which Slovenia and several analogous EU regions are phasing out from coal
Coal phase-out is part of a wider European commitment to decarbonisation under the European Green Deal and the Just Transition Mechanism (since 2021). Several member states (e.g. Spain, Germany, Czechia, Romania and Poland) are managing similar processes through the EU Coal Regions in Transition Initiative (since 2017), with technical assistance available through the Just Transition Platform. The common challenge is to diversify regional economies, support workers and remediate environmental legacies. SAŠA and Zasavska also face these issues.
Slovenia’s policy framework for the coal transition was set in 2022 with the National Strategy for Phasing Out Coal and Restructuring of Coal Regions. This was followed by Territorial Just Transition Plans (TJTPs) for SAŠA and Zasavska, adopted by the European Commission in December 2022. The TJTPs are concrete, operational plans linked to Just Transition Mechanism financing, including the Just Transition Fund.
The preparation and implementation of the TJTPs involved relevant local and regional authorities and partners, in accordance with the JTF Regulation (Article 11). For 2021-2027, the JTF is programmed at the national level. Slovenia has indicatively allocated 70% of JTF funds to SAŠA and 30% to Zasavska, complemented by EUR 21.2 million in national budget co-financing for public-sector beneficiaries and an estimated EUR 24.5 million in co-financing from private-sector beneficiaries. The TJTPs contain categories of operations and measures envisaged across priority areas (as set out in Chapter 2), as well as several flagship projects determined in consultation with relevant stakeholders, providing a basis for implementation. Regional development programmes for 2021-2027 embed just-transition objectives within broader regional priorities. They include project selections that draw on JTF where eligible and use other EU and national instruments for non-JTF components, helping to align territorial development with the transition pathway.
The policy framework is complemented by legal measures. In Zasavska, laws governing the closure of the Zagorje, Senovo, Kanižarica and Trbovlje-Hrastnik mines were adopted from the mid-1990s onward. These were complemented by targeted support such as the Programme for Promoting Competitiveness of the Depressed Area of Hrastnik, Radeče and Trbovlje (2013-2020). In SAŠA, two acts, the Act on the Gradual Closure of the Velenje coal mine and the SAŠA Region Restructuring Act have been recently approved (last quarter of 2025). Their timely entry into force would give a financial framework, a legal effect to the transition policy objectives and provide clearer mandates for the implementation of coal phase-out measures, since the government has indicated that mining could end earlier than 2033.
Taken together, EU instruments, TJTPs, regional development programmes (RDPs) and national legislation provide a short- to medium-term pathway to enable regions and people to address the social, employment, economic and environmental impacts of the transition towards EU 2030 energy and climate targets and a climate-neutral EU economy by 2050.
A transition that navigates common structural challenges across both regions
The contrasting experiences of SAŠA and Zasavska reveal valuable patterns in how the timing and governance of coal transitions shape regional outcomes. SAŠA, which is still reliant on coal-based energy production, has higher industrial output and positive inward labour-migration trends that provide a productive foundation for the planned diversification. Zasavska, whose mine closed over two decades ago, has shown resilience in managing economic scarring. It has made demonstrable progress in environmental recovery and shows emerging strengths in clean-tech development, which can now inform SAŠA's transition pathway.
Despite their different starting points, both regions face common structural challenges that can be addressed through co-ordinated action:
Productivity: while lagging national benchmarks, the regions show potential for convergence with targeted investment in skills and innovation. Income convergence has stalled in some sectors, yet both regions possess distinctive assets (see next subsection) which could anchor new growth trajectories.
Demographic pressures: rising population age and low youth retention represent demographic sustainability constraints, though both regions have achieved relative stabilisation in population flows.
Environmental conditions: SAŠA records nearly three times higher per capita greenhouse gas emissions than the national level (18.8 tonnes of carbon dioxide equivalent (tCO₂e) in 2023 versus 7.2 tCO₂e in Slovenia) and faces land subsidence challenges of up to 12 metres, with continued settlement expected 15-20 years after mine closure. Zasavska benefits from its early environmental remediation efforts, with emissions (6.9 tCO₂e per capita) now standing below the country level. However, it remains vulnerable to high drought exposure (with 97.2% of its territory affected in 2022), pointing to the ongoing nature of environmental management in post-coal regions.
Leveraging regional assets will serve as the foundation for building the transition to the future
However, both SAŠA and Zasavska possess significant assets that provide a solid foundation for renewal and resilience:
Innovation and clean, technology leadership: Zasavska is advancing in clean-tech innovation through the National Institute of Chemistry's Centre for Development, Demonstration and Training of Carbon-Free Technologies (DUBT), reinforced by proximity to Ljubljana and access to research institutions. The Strategic Research and Innovation Partnership (MATPRO) help integrate material producers, developers and manufacturers into full value chains.
SAŠA invests substantially in innovation infrastructure. The Velenje Technological Park (EUR 14.2 million from JTF) and the Old Powerplant Future Centre (EUR 28.1 million from JTF) position it as an emerging energy innovation hub. The planned Hydrogen Valley and a biomass bio-refining research centre strengthen this trajectory.
Natural capital and green assets: both regions benefit from over 90% green area coverage, offering untapped potential for sustainable tourism. Zasavska's mountainous landscapes, cultural sites and industrial heritage trails (e.g. the Miners Hiking Trail) provide opportunities for green economic infrastructure. Also, SAŠA's valleys offer pathways for high-value food production and agritourism.
Renewable-energy transition; Zasavska advances toward renewable targets through the Prapretno Solar Park (with the objective of expanding the current 3 megawatts to 12.9 megawatts) and the “small hydrogen valley” concept. SAŠA's shift to renewable-based district heating is both an environmental and an innovation opportunity, with EUR 20 million in JTF funding approved for Phase 1 to support project preparation and works.
Emerging entrepreneurship and strategic location: Zasavska shows renewed dynamism with enterprise birth rates (11.7% in 2022) standing slightly higher than the national average (11.2%). The Katapult initiative by Dewesoft, based in Trbovlje, is developing an innovation project in the Lakonca business zone. The regional ecosystem also includes the Kisovec II business zone in Zagorje ob Savi and the Kompreshaus incubator in Hrastnik. Both regions benefit from proximity to research centres, labour markets and transport corridors. Zasavska's proximity to Ljubljana attracts investors and knowledge transfer. SAŠA's connection to the University of Maribor's Faculty of Energy Technology enables testing and pilot production aligned with clean-energy investment.
A governance framework involves several actors in the planning and implementation of the transition.
Slovenia has developed a governance framework for the transition. The country adopted its National Strategy for Phasing Out Coal and Restructuring of Coal Regions in January 2022 and the National Energy and Climate Plan (last update in 2025) committing to cease using coal for electricity production no later than 2033. The TJTPs for SAŠA and Zasavska, adopted by the European Commission in December 2022, operationalise this commitment within the EU framework. They outline the expected transition process towards the European Union's 2030 targets for energy and climate and a climate-neutral EU economy by 2050. They are aligned with the objectives of the integrated national energy and climate plan and other transition plans, setting a timeline for ceasing or scaling down activities such as coal and lignite mining or coal-fired electricity production. The European Commission's recognition of the quality and coherence of Slovenia's planning process reflects the rigour of this approach.
In SAŠA, this governance framework will be supported by two relevant legal instruments: the Act on the Gradual Closure of the Velenje Coal Mine and the SAŠA Region Restructuring Act. These acts have been recently approved (last quarter of 2025) and intend to set the legal and financial pathway for the closure of the Velenje coal mine and the Šoštanj thermal power plant, and to define measures for economic restructuring, employment support and land rehabilitation in the region. The just transition of the SAŠA region would benefit from a prompt adoption of both acts, given their role in providing clarity on responsibilities, sequencing and financing for the phase-out.
Overall, the coal phase-out involves co-ordinated action across multiple governance levels:
The EU level provides strategic policy direction and funding through the Just Transition Mechanism, including the Just Transition Fund. It also supports knowledge exchange and technical assistance through platforms such as the Just Transition Platform and the Coal Regions in Transition initiative, which provide guidance on transition planning, stakeholder dialogue and project preparation across EU coal regions.
The national level is led as line ministry by the Ministry of Cohesion and Regional Development (MCRD). The ministry serves as the managing authority for Slovenia's EU Cohesion Policy programme 2021-2027, encompassing the JTF alongside other cohesion policy funds, and is responsible for overall TJTP implementation. Multiple line ministries – the Ministry of the Environment, Climate and Energy (permitting guidance); the Ministry of Economy (state aid and SME support); the Ministry of Higher Education, Science and Innovation (research and development [R&D] instruments); the Ministry of Labour, Family, Social Affairs and Equal Opportunities (reskilling); and the Ministry of Education, Science and Sport (vocational education and training alignment) – contribute sectoral expertise, so that funding calls, eligibility interpretations and project screening are consistent across sectors. This set-up enables joint decisions at defined gates (design, permitting, award) and reduces rework and processing times. Co-ordination mechanisms established through the TJTP governance structure, including a multi-ministerial steering group, are designed to ensure policy coherence across sectors, and clarify roles and responsibilities in the transition process.
The regional level includes Regional Development Agency Zasavje (RDA Zasavje) in Zasavska and Development Agency SAŠA (DA SAŠA) in the SAŠA region. Both DA SAŠA and RDA Zasavje have co-management functions which include expressing regional opinions on open calls, identifying project proposals and participating in cohesion-policy assessment processes. Both agencies operate dedicated Just Transition Centres (JTCs) funded by the JTF, which act as operational hubs providing day-to-day guidance and support to applicants, municipalities and other stakeholders.
The regional level also includes regional development councils, the Regional Council of mayors and municipal administrations. Regional development councils and the Regional Council provide advisory input and approve regional development programmes under the Act on the Promotion of Balanced Regional Development, Slovenia (ZSRR-2). With regard to the JTF, they are informed about implementation and may be consulted, but they do not issue approval or execution decisions. Municipalities are at the forefront of the transition: they are responsible for spatial planning under the Spatial Planning Act, shaping project pipelines through elected councils, and maintaining trust with residents and local businesses through direct proximity.
On top of the JTF, development objectives related to the coal transition are integrated into Slovenia's RDPs for 2021-2027, enabling complementary support through the European Regional Development Fund and other cohesion instruments. This nested approach, which embeds transition priorities within multiple funding instruments, allows regions to leverage resources across policy objectives (renewable energy, workforce development, SME support, infrastructure) while maintaining strategic coherence.
Two complementary planning instruments guide implementation. The RDP, prepared by regional bodies and confirmed by regional councils, covers the full regional agenda and provides the strategic backbone for development efforts. The TJTP, which is mandatory for accessing JTF resources, is prepared by national authorities, the managing authority co-ordinated and assisted in the entire process of programming, in collaboration with RDA/DA and JTCs. It is underpinned by broad stakeholder consultation and formally approved by the European Commission, ensuring alignment with European objectives. While linked, these serve distinct functions. Each RDP incorporates specific development objectives related to the TJTP, making them intertwined documents guiding the implementation of the just transition. In SAŠA specifically, the sub-regional development programme (prepared by DA SAŠA) feeds into the broader regional development programme of Savinjska, which aligns with and references the TJTP while providing the legal and financial framework for concrete action. This nested approach represents a well-articulated design for scaling regional priorities within national frameworks.
Notes: DG REGIO = Directorate-General for Regional and Urban Policy. MLFSA = Ministry of Labour, Family, Social Affairs and Equal Opportunities. MHESI = Ministry of Higher Education, Science and Innovation. METS = Ministry of the Economy, Tourism and Sport. ME = Ministry of Education. MECE = Ministry of the Environment, Climate and Energy.
Selected small governance adjustments and better strategic alignment can help improve implementation
Slovenia has established a robust policy framework, yet implementation of the JTF has proceeded unevenly across the two regions, with spent funding reported as of October 2025 standing at 0% for SAŠA and 12.1% for Zasavska. Three factors currently shape implementation velocity, each of which could be strengthened or adjusted to increase impact.
First, regulatory requirements, particularly on climate proofing and “do-no-significant-harm” assessments, can extend preparation timelines substantively for capital-intensive operations (such as infrastructure). While such requirements help ensure quality outcomes, streamlining their preparation could accelerate project flow. Second, public-call mechanics can create temporal friction due to occasional cancellations and reissues. The Public Agency for Entrepreneurship, Internationalisation, Foreign Investments and Technology (SPIRIT) Slovenia call was cancelled in February 2025 owing to procedural irregularities related to applicants, and reissued in October 2025. By contrast, the 2023 incubator call in SAŠA was cancelled because the two proposals submitted by the Municipality of Velenje did not meet JTF requirements and was republished in April 2025. Finally, approvals pass through several bodies. Complex projects often sit between the end of the technical assessment and the formal decision by the competent ministry or government committee for periods of time that reduce efficiency in the process. Clear handover rules and time limits for each step would reduce processing delays.
Two targeted actions could help unlock meaningful speed improvements, without creating new institutional structures. A key starting point is to formalise high-level inter-ministerial co-ordination at critical project gates, including at the state-secretary level, immediately after completing the technical assessment. This could convert technically ready projects into approved decisions within predictable timeframes, bringing together the MCRD (line ministry), other relevant ministries involved in the transition, and both JTCs and regional development agencies, where territorial input is valuable. Equally important is streamlining procedures for public funding calls. This involves clarifying which agencies and ministries are responsible for each component of the process (publication, follow-up, selection, administration, etc.), building on previous institutional experience to use the funds more efficiently and effectively. Both actions could build on existing co-ordination mechanisms while enabling faster throughput over the 2025-2029 period where JTF funds flow to municipalities and beneficiaries.
Clarifying roles and extending the JTC model can strengthen the impact of the projects as transitions deepens
The JTCs are accessible “one-stop” interfaces for the transition. According to JTC SAŠA reporting for 2022-2023, the centres supported several project submissions and organised targeted outreach for trade unions, cultural associations and local administrations. They provide day-to-day support to applicants, help develop the project pipeline, and act as liaisons between ministries, municipalities and other stakeholders. However, the centres face a sustainability challenge beyond the current JTF programming period; in 2024, around 72-74% of the host agencies’ income came from EU project and technical-assistance lines, with less than 5% coming from the national budget.
Two initiatives could strengthen the JTC model and ensure both medium- and long-term impact. First, JTCs could evolve as operational hubs with enhanced capacity, adding expertise on complex files through training, templates, peer exchange and increased staffing. Enhanced JTCs could help screen proposals against EU, national, and regional priorities, and test technical maturity before entry into funding calls.
Alternatively, expert representatives from different national agencies could help streamline labour-market insights. For example, the Employment Service could further assist JTC/RDA advisory groups and co-ordinate with the Labour Market Platform developed by the Ministry of Labour, Family, Social Affairs and Equal Opportunities, in partnership with the Employment Service of Slovenia. The platform provides short, medium and long-term projections of occupational and skill demand; real-time labour-market data; and interactive tools for employers, job seekers, policymakers and researchers. By integrating the platform's capabilities into JTC advisory functions, regions can align skill-development and workforce-transition strategies with evidence-based labour-market forecasts, enhancing the effectiveness of reskilling programmes and identifying emerging opportunities for economic diversification. This alignment between JTC support functions and real-time labour-market intelligence would be particularly valuable in SAŠA, where the planned timeline for the mine closure makes it critical to identify early the skill needs and employment pathways for workforce transition.
Effective implementation of the transition can be strengthened with co-ordinated action on vision, institutional capacity, project prioritisation and performance monitoring.
Despite well-structured plans and dedicated funding, progress has been uneven across the two regions. Delivery of the transition can improve by focusing on four practical levers: (i) consolidating a shared, long-term vision to guide investment choices; (ii) improving project preparation and pipeline support to ensure proposals are mature; (iii) strengthening enabling conditions, such as innovation, workforce skills and infrastructure, to help projects take root; and (iv) expanding territorial data and monitoring to support evidence-based management. While these levers structure the implementation analysis in this chapter, they ultimately converge into the seven strategic recommendations presented.
Consolidating a shared, long-term vision will anchor transition investments in broader development goals
A shared territorial vision is important for managing the structural transition in coal-dependent regions. In SAŠA and Zasavska – where the coal phase-out overlaps with demographic decline, industrial restructuring and environmental legacies – such a vision can provide direction, give coherence to public and private action, and help build local ownership of the transition. It can also reduce investor uncertainty, by signalling a clear longer-term development path and supporting alignment across levels of government.
Both regions already possess elements of such a vision. In Zasavska, work (such as the “Zasavje Beyond 2027” visioning exercise, the Regional Development Agreement 2021-2027 and initiatives to develop an extended development narrative beyond the current programming cycle) has started to outline future economic diversification, well-being and environmental regeneration. In SAŠA, the Sub-regional Development Programme (2021-2027) sets common priorities for the municipalities in the SAŠA area. Furthermore, in SAŠA, two acts, the Act on the Closure of the Velenje Coal Mine and the Act on the Restructuring of the SAŠA Region, were adopted by the Government of Slovenia in late 2025 and are currently undergoing parliamentary procedure. They will provide the legal and financial framework for mine closure, restructuring measures and land rehabilitation. A single, consolidated and long-term vision, aligning the just-transition process with the forthcoming National Regional Development Strategy 2050, has not yet been formalised.
To move from priorities to implementation and limit fragmented investment, both regions could formalise a territorial vision and use it as an adjustable planning document to filter and prioritise investments. This vision could be embedded in existing instruments (TJTPs, RDPs, municipal spatial plans) and used as one of the assessment criteria in future JTF calls. This would allow assessing projects not only on their technical feasibility and administrative compliance, but also their contribution to long-term diversification. This can help direct funding towards structural transformation and reinforce the participation of local firms in emerging value chains such as hydrogen, clean technologies and circular economy activities. Formal endorsement by regional development councils and regional councils, and periodic updating based on implementation progress, could provide the political legitimacy and adaptive capacity needed to sustain the transition through multiple funding cycles and beyond 2029.
Project preparation and pipeline support can help deliver impactful projects in Slovenia’s regions phasing out coal
Slovenia already applies a wide and transparent set of project-selection criteria under EU Cohesion Policy, prepared by the managing authority and approved by the Monitoring Committee (Criteria for the selection of operations 2021-2027 and related guidelines). These criteria are official, public and binding for JTF and other cohesion-funded operations. As the mix of funding sources for the transition – including cohesion funds, other EU instruments and national schemes – evolves, it is useful that applicants in SAŠA and Zasavska can navigate a coherent set of guidance. Keeping future updates to the Criteria for the selection of operations 2021-2027 (also named Merila 2021-2027) and related instructions consistent with new EU requirements, regional development programmes and long-term regional visions can give a clearer and more predictable framework for project preparation, and for understanding which types of projects are most likely to be financed.
Within this framework, better project preparation and pipeline support can increase project quality and reduce delays, without changing existing selection criteria or decision-making procedures. According to the interim implementation report, more than 70% of proposed operations were initial ideas or aspirations. These lacked a technical feasibility study, financial plan or land/site assessment, making preparation and assessment more demanding for both applicants and administrations. A streamlined, pre-application support by JTCs and RDAs/DAs – using simple tools such as short concept notes, basic feasibility and permitting checklists, and simple financial outlines – can help applicants check alignment with TJTPs and RDPs, and whether minimum documentation is in place before responding to formal calls. Where several ministries run separate calls that are relevant to the transition, this is particularly important for integrated, multi-sectoral projects combining different types of investment. In such cases, presenting information and submission processes through a clear, single front door, with co-ordination handled on the administration side rather than through separate contacts for each ministry, could also be helpful for applicants.
A more structured discussion of project ideas before submission would allow the managing authority, line ministries and regional JTCs to focus their efforts on proposals that are both aligned with the regional transition pathway and realistically implementable within the funding period. This can ease bottlenecks linked to late regulatory checks, uneven capacity in smaller municipalities and the sequencing of permits. Pipeline support should reflect each region’s profile – in SAŠA, energy restructuring and clean technologies; in Zasavska, brownfield redevelopment, new business zones, applied research and SME upgrading. Using these transition drivers, together with existing selection guidelines, as reference points can help ensure that project ideas developed through pre-application support are more likely to evolve into mature proposals that contribute to long-term structural change.
Strengthening enabling conditions helps transition projects take root in the Zasavska and SAŠA regions to ensure long-term local benefits
Beyond mine-closure and workforce measures, strengthening local enabling factors for development is essential both to enhance the competitiveness and local links of transition projects and to improve liveability for residents and new workers. This report identifies three priority areas of enabling factors for the Zasavska and SAŠA regions: the innovation ecosystem; the labour market; and the land, energy and transport infrastructure.
Strengthening the regional innovation ecosystem. Both regions have assets that can be better connected to delivery. In SAŠA, anchor firms and the planned relocation of the Faculty of Energy to the former power-plant site can be linked more directly to SME supply chains and project consortia through RDA/JTC brokerage and standardised mentoring. In Zasavska, assets such as the DUBT Centre and business zones (e.g. Kisovec II, Lakonca) and SRIP MATPRO can support applied R&D, pilots and supplier upgrading by using simple templates for feasibility work and early-stage project preparation.
Improving the local labour market. Challenges include fragmented training offers, misalignment with employer needs, a small local labour pool with longer commuting times and youth out-migration, and a gender-based remuneration gap (with women in Zasavska earning about 10% less than men). Practical steps include co-designing curricula with employers, early identification of at-risk workers in SAŠA, accelerated upskilling pathways and, particularly in Zasavska, strengthening vocational bridges and placement services. Embedding training and apprenticeship requirements in funded projects and using access to JTC-co-ordinated training funds, with clear timelines, can help align offers with demand.
Enhancing land-use as well as transport and energy infrastructure. Three interdependent dimensions require strategic attention: (i) energy, planning for renewable-based district heating in SAŠA to replace lignite supply; (ii) transport, more reliable intermunicipal bus services, and basic cycling links to jobs and services; and (iii) land, streamlined brownfield remediation steps, clearer land assembly processes and prioritisation of brownfield over greenfield to lower investor risk.
Expanding territorial data and performance monitoring could help reinforcing evidence-based decision-making for the transition
Finally, without systematic monitoring and evidence, even well-designed initiatives can lose strategic direction. Slovenia already produces substantial territorial data through the Statistical Office of the Republic of Slovenia, which releases more than 4 000 regional indicators through its SiStat portal. The Institute of Macroeconomic Analysis and Development's annual development report tracks 190 socio-economic variables, while the Environment Agency maintains detailed inventories on air quality, emissions and contaminated sites. All EU Cohesion Policy funds are recorded in real time in e-MA (not publicly available), the national information technology system operated by the MCRD.
In terms of granularity, Zasavska as a statistical unit in Slovenia is well covered. However, SAŠA is not a standalone statistical unit as it is a subregion and part of the Savinjska region. Hence, most regional-level data do not separately identify the subregion, limiting the ability to benchmark performance and measure transition outcomes. Data limitations were evident throughout this assessment, with most presentations relying on Savinjska Territorial Level 3 indicators rather than subregional dynamics.
Slovenia could explore three initiatives to strengthen evidence-based decision-making. First, it could expand data granularity to the SAŠA subregion by providing tailored analysis of economic indicators (GDP per capita, productivity), social indicators (youth and elderly ratios, education, health outcomes) and environmental indicators (greenhouse gas emissions, forest change). Tagging each TJTP call in e-MA with municipal codes would allow rolling out approvals and disbursements not only to Savinjska, but also to the ten SAŠA municipalities. Second, it could build on analysis from current monitoring platforms to feed into vision development and review. Scorecards could inform the development of regional visions by strengthening evidence-backed insights, closing the feedback loop between implementation experience and strategic adjustment. Third, Slovenia could explore leveraging current platforms (SiStat, EARS, ESRS) to build a permanent "transition well-being" monitoring framework extending beyond the 2021-2027 cohesion cycle. Inspired by the OECD Mining Regions Well-Being Toolkit, which groups metrics into various dimensions – economic (jobs, GDP), environmental (land, emissions) and social (population, health) – Slovenia could develop a scorecard informing decision-making at the municipal, regional and national levels, helping to ensure timely, evidence-based policy adjustments based on existing monitoring tools.
Looking beyond 2029 requires scenario planning and continuity in transition delivery.
Looking beyond 2029, EU Member States will decide on the next long-term EU budget through a process involving the European Council acting unanimously, with the consent of the European Parliament for the Multiannual Financial Framework and, where relevant, ratification by national parliaments for the revenue. The European Commission's proposals of 16 July 2025 for the 2028-2034 Multiannual Financial Framework outline a streamlined model of national and regional partnership plans that will guide investments and reforms across multiple EU funds and programmes, including support for a just transition towards the Union's 2030, 2040 and 2050 energy and climate targets. Under this proposed architecture, just transition objectives would be addressed in a cross-cutting manner across the National and Regional Partnership Plans rather than through a standalone mechanism. The proposal is subject to negotiations, and the final structure and allocations will depend on the outcome of the co-legislative process.
Against this backdrop, coal regions should plan for multiple scenarios and use a broader financing mix, including EU, national and private sources. With JTF eligibility running to the end of 2029, both Zasavska and SAŠA can use TJTP amendments, where relevant, to fine-tune priorities and maintain delivery momentum within the current programming framework. In parallel, they can embed transition priorities in forthcoming National and Regional Partnership Plans, as proposed by the European Commission, and in any subsequent cohesion policy programming; align flagship projects with EU priorities on clean energy and clean-technology manufacturing; position projects so they can be financed under different policy windows where transition objectives are integrated across instruments; and combine cohesion resources with national climate and energy lines, environmental funds, public development banks and private co-investment. Keeping strategies live through periodic updates to TJTPs and RDPs and maintaining a rolling two-year pipeline so that projects are ready for whichever instrument opens first, will help sustain implementation while continuing to focus on benefits for residents, firms and places.
References
[2] European Commission (2022), Partnership Agreement between Slovenia and the European Commission 2021–2027, https://www.euro-access.eu/_media/file/161_Slovenia_Partnership_Agreement_2021-2027.pdf.
[6] Gov.si (2023), Just Transition Fund – a new instrument of the 2021-2027 programming period, https://www.gov.si/en/news/2023-12-15-just-transition-fund-a-new-instrument-of-the-2021-2027-programming-period/#:~:text=''Around%20250%20million%20euros,by%20the%20end%20of%202026.
[1] Gov.si (2023), Savinjska region, https://www.stat.si/obcine/en/Region/Content/4.
[3] RDA Zasavje (2025), Data on number of job losses following coal mine closure provided by RDA Zasavje.
[5] Slovenia Ministry of Cohesion and Regional Development (2025), RDA Revenue breakdown by sources of financing.
[4] Stat.si (2023), Savinjska region, https://www.stat.si/obcine/en/Region/Index/4.