Slovenia’s commitment to phasing out coal by 2033 places the Zasavska region and the Savinjsko-Šaleška subregion (SAŠA) on distinct but connected transition paths. Zasavska, where coal mining closures started in 1994 and ended in 2014, has experienced three decades of adjustment. Gross domestic product per capita remains below the national average, but business creation has increased and demographic decline has slowed. SAŠA, by contrast, still hosts an active coal mine and thermal power plant employing over 2 000 workers and continues to attract labour inward migration. It faces a dual task during the remaining operating period, namely, to build alternative economic activities while managing the social impacts of the forthcoming closure. Both territories benefit from European Union (EU) and national support; research and innovation assets; and established regional development institutions, namely, the Regional Development Agency of Zasavje (RDA Zasavje) and the Development Agency of SAŠA (DA SAŠA).
The national framework for this transition is well developed. The Integrated National Energy and Climate Plan, the National Strategy for the Exit from Coal and the Restructuring of Coal Regions, and the territorial just transition plans (TJTPs) set the strategic direction and enable access to the Just Transition Fund (JTF), with EUR 258.7 million in EU resources. National co-financing comprises EUR 21.2 million from the state budget for public-sector beneficiaries, with an additional EUR 24.5 million expected from private-sector beneficiaries. TJTPs form part of Slovenia’s 2021-2027 EU Cohesion Policy programme and are implemented alongside regional development programmes (RDPs), which integrate just transition objectives into wider regional priorities. Just transition centres (JTCs) hosted by the RDAs/DAs act as operational contact points for applicants and stakeholders.
However, progress in implementation is uneven. By late 2025, a significant share of JTF resources had been allocated to selected operations but disbursements lagged behind, particularly in SAŠA. Stakeholders point to administrative complexity, the sequencing of regulatory checks, and delays between technical assessment and ministerial approval as factors that can slow delivery. At the same time, the future resourcing of JTCs beyond 2029 is uncertain, as much of their current income comes from EU technical assistance. These conditions frame the analysis of this report and the areas where adjustments could help improve the just transition efforts.
A first area concerns strategic vision and project preparation. In both coal regions, key planning elements for the transition are spread across several instruments, including TJTPs, RDPs, sub-regional programmes and draft acts. A consolidated long-term vision, rooted in regional identity and aligned with the forthcoming National Regional Development Strategy, could help bring these elements together. Such a vision would set a small number of measurable objectives for 2025-2030, 2030-2040 and beyond, providing a stable reference when public and private actors choose and sequence projects across funding cycles.
Stronger project preparation and pipeline support can help connect this vision to implementation. Slovenia already applies a public and binding set of cohesion policy selection criteria, prepared by the managing authority and approved by the monitoring committee (Merila 2021-2027 and related guidelines). Within this framework, regions still face challenges linked to the maturity and feasibility of some proposals, especially where technical studies, financial plans or permitting steps are not yet in place. A streamlined, pre-application stage led by JTCs and RDAs can support municipalities and other applicants in bringing proposals to a more advanced stage before they enter formal calls, with early checks on alignment with TJTP and RDP priorities, documentation quality and basic financial planning.
A second area relates to strengthening governance mechanisms for effective transition delivery. Interministerial co-ordination already operates through cohesion policy steering structures, with the management and control system setting clear roles for the managing authority, the intermediate bodies and the programme monitoring committee. Even so, complex operations that require several ministerial confirmations can experience slower approval once technical work is complete. Scheduled high-level meetings at the state secretary level could help confirm timelines and resolve cross-ministerial issues. In parallel, JTCs would benefit from a longer-term mandate and more stable funding sources. To support this governance, robust data and monitoring frameworks are essential. Currently, SAŠA lacks separate statistical status, making it harder to track outcomes. Expanding data availability for SAŠA municipalities and strengthening the territorial tagging of projects would help monitor trends more closely. Developing a permanent “transition well-being” scorecard, tracking indicators on employment, investment, emissions, health and education, can support dialogue with stakeholders and help adjust policies as conditions evolve.
A third area concerns strengthening conditions for regional growth and local long-term development. Zasavska and SAŠA both have industrial know-how, research and innovation facilities, and natural assets that can support new activities. Zasavska has established the Carbon-Free Technologies Centre (DUBT) and has a high share of green areas that can be used for sustainable tourism and nature-based activities. SAŠA benefits from the Velenje Technology Park, Hydrogen Valley plans, the tech hub and the relocation of the Faculty of Energy. However, links between these anchor projects and local small and medium-sized enterprises (SMEs) remain limited, and training offers are fragmented. More structured co-operation between anchor projects, local SMEs, and education and training providers can help retain more value in the regions and prepare the workforce for future opportunities in energy, advanced manufacturing and services.
Finally, a fourth area focuses on improving enabling factors for project competitiveness and regional liveability. Beyond direct business support, the physical environment plays a crucial role in attracting investment and talent. Improvements in land-use planning to mobilise degraded sites, along with upgrades to transport and energy infrastructure, are necessary to boost competitiveness. Ensuring these enabling factors are in place will allow the regions to not only implement transition projects effectively but also enhance the quality of life for residents, helping to attract new workers and mitigate demographic challenges.
On this basis, the report sets out seven recommendations grouped into four areas: anchoring the transition in a shared long-term vision; strengthening governance and co-ordination for effective delivery; reinforcing innovation, SME integration, workforce support and social inclusion; and improving land, energy and infrastructure conditions so that transition projects can generate lasting local development benefits. Detailed recommendations are presented in the next chapter, with a specific action plan in Chapter 5.