Slovenia’s New Climate Law: Ambition Without Action

During this time three governments were involved and several drafts circulated, commented, amended, withdrawn, forgotten, resubmitted, consolidated, watered down and eventually adopted. At the same time climate change developed from a distant threat into national catastrophe(s): in 2022 the largest forest fires in history hit the country’s coastal region; in 2023 devastating floods affected most of the country and destroyed roads, bridges and whole villages; after decades of tradition the city of Maribor lost the FIS Ski World cup race due to consistent lack of snow; summer heat waves and storms with strong winds, rain and hail have become more frequent and intense. Slovenia is the European country with the highest economic losses per capita and per square meter caused by weather- and climate-related extreme events.

Climate neutrality until 2045 – but the path there is still unclear

Against this background it should be in Slovenia’s self-interest to be a climate leader and try to convince other countries to reduce emissions. And indeed, with the climate law Slovenia upped its long-term climate ambition by moving the target for climate neutrality from 2050 to 2045. This is a necessary step towards consistency with the goals of the Paris Agreement, but not enough. 

Binding intermediate targets for 2035 and 2040 are lacking, which increases the risk for backloading emissions reductions towards mid-century. Moreover, the new law in large parts merely transposes the EU climate acquis without going beyond it with national measures. A small exception is the introduction of a new, albeit very modest, climate tax on flights with private jets of up to 250 EUR per flight. 

Slovenia commits to the emissions trading system for buildings and road transport

Slovenia is at least rather diligent in implementing EU legislation. A central new EU climate policy is the extended emissions trading scheme (ETS) for the sectors buildings and road transport. Several EU member states have not yet transposed the new EU ETS directive into national law. Some even openly talk about not implementing the new ETS at all. 

Slovenia’s climate law transposes the directive and establishes the national Social climate plan, which is intended for the most socially vulnerable. Almost half a billion euros will be allocated to supporting poorer households in reducing their emissions and to eliminating mobility and energy poverty. Slovenia missed the June deadline to submit its national Social climate plan to the European Commission, which is the prerequisite for receiving EU funding, but intends to submit the plan later in autumn 2025.

Climate justice at risk without a phase-out of harmful subsidies

But even the best social climate policy plan – and we do not know yet how good the Slovenian will be – will not be effective if at the same time fossil fuel subsidies are continued. And this is the largest weakness of the new law. It does not only fail to regulate the phase-out of fossil fuel subsidies, but industry lobbies even managed to slip in an article entitled reduction of levies and taxes on fossil fuel. By automatically reducing excise duties when emission certificates of the new ETS hit a certain price threshold, the climate law itself introduces a new subsidy. 

This contradicts the polluter pays principle which is supposed to guide the very same law. Moreover, it sends the wrong signal, namely that CO₂ emissions will continue being cheap and unproblematic. In absolute terms this new subsidy benefits the rich much more than the poor and therefore increases the already growing economic inequalities in Slovenia. Such a scattergun approach of reducing excise duties for all disregards the large differences between income groups, both with regards to their responsibility for the climate crisis and their capabilities for reducing emissions.

The share of expenditure on transport by income group and car access in Slovenia in 2022 shows that poorer car owners are very vulnerable to fuel price increases (source: Focus)

The hundreds of millions of euros Slovenia spends on subsidies for fossil fuels could be invested in measures for a just green transition: in better public transport, which would reduce car dependency; in energy-efficient renovations of housing stock, which would reduce household heating costs and improve quality of life; in affordable public housing in the cities, which would reduce the need for daily commuting; in adaptation to the increasingly severe consequences of the climate crisis. In short, reducing dependence on fossil fuels has the potential to lower the prices of basic necessities, improve quality of life, and increase social resilience.

Climate change adaptation planning: prepare for the worst

Finally, the law also manages how climate change adaptation will be addressed by the state. Current assessments and strategies in this field are largely incomplete or outdated.  The law provides for the preparation of a new national strategy, risk assessments for all sectors and regional action plans for adaptation. At the same time a large integrated LIFE project started in 2025, LIFE4ADAPT, which is meant to support the implementation of the Slovenian adaptation strategy over the next seven years by enhancing knowledge, and strengthening institutional capacity.

Lipica, home of the famous Lipizzan horses, is already a drought-prone area and may turn into a savannah by the end of the century (source: Umanotera)

In summary: a mixed bag with several holes

Slovenia’s climate law in its current form will not be a game changer for national climate politics, nor does it serve as a suitable blueprint for other countries. The positive aspects like the 2045 climate neutrality target or the new tax on private jets are mainly symbolic, while controversial issues such as binding national targets from 2030 onwards or the phase-out of fossil fuel subsidies have been spared out. It remains to be hoped that at least the plans for better adaptation to climate change and social-climate policy will succeed. This is because climate change and its consequences will continue to intensify in the northern Adriatic region – on the hot side of the Alps.

As partner of the project ClimateFairMonitor Umanotera, the Slovenian Foundation for Sustainable Development, supports the socially just implementation of ETS2 and SCF aiming to reduce emissions in buildings and transport while empowering stakeholders and promoting equitable climate policy in Slovenia and other countries of Central and Eastern Europe.