Greece introduces new spatial planning rules for tourism through joint ministerial decision

Following the completion of the public consultation, the plan will be submitted to the National Council for Spatial Planning. The objective is for the relevant Joint Ministerial Decision (JMD) to be signed by the end of June.

The new framework, presented at an information event by the Minister of Tourism, Olga Kefalogianni, and the Minister of Environment and Energy, Stavros Papastavrou, divides tourism areas into five categories, while the islands are further classified into three groups based on the number of beds, land area, and population.

Within these areas, different rules apply regarding the types of permitted tourism investments, minimum plot size requirements for new hotels, maximum accommodation capacity, as well as environmental protection conditions and the preservation of the distinctive character of each area.

Specifically, the areas are classified as follows:

1. Controlled Development Areas
These are areas with very high levels of tourism development, where priority is given primarily to the upgrading and modernisation of existing accommodation facilities, with stricter conditions for the establishment of new tourism units. For new hotels in off-plan areas, a minimum land parcel of 16 stremmata is required. On islands in this category, a maximum limit of up to 100 beds is provided for new tourist accommodations.

2. Developed Areas
Priority is maintained on qualitative upgrading, albeit with milder restrictions. The minimum plot size for new off-plan hotels increases to 12 stremmata, while on islands in this category, units of up to 350 beds are permitted. At the same time, special forms of tourism and the development of modern tourism infrastructure are encouraged.

3. Developing Areas
Greater scope is provided for the development of new tourism activities and accommodation, with the aim of the gradual strengthening of the tourism product.

4. Early Development Areas
Emphasis is placed on the mild development of emerging destinations and on the utilisation of the distinctive characteristics of each area.

5. Areas for Special Development Enhancement
These primarily concern special forms of tourism, such as mountain, thermal, marine, or diving tourism.

Areas with special geographical characteristics

Metropolitan Areas
Within the planned areas of the Region of Attica and the Metropolitan Area of Thessaloniki—as defined in the applicable Regional Spatial Framework of Central Macedonia—incentives are provided for the reuse of former industrial installations as tourism facilities.

Islands
In addition, islands—excluding Crete and Evia—are divided into three groups and one special category:

• Group I: Islands over 250 sq. km., where greater tourism development is permitted, along with enhanced requirements for documenting carrying capacity through special studies. Group I includes the following islands: Andros, Zakynthos, Thasos, Ikaria, Karpathos, Corfu, Kefalonia, Kythira, Kos, Lesvos, Lefkada, Lemnos, Naxos, Rhodes, Samos, and Chios.
• Group II: Islands of 20–250 sq. km., with a limit of up to 100 beds. This includes islands such as Agios Efstratios, Aegina, Alonissos, Amorgos, Anafi, Antikythera, Antiparos, Astypalea, Gavdos, Ithaca, Ios, Kalamos, Kalymnos, Kasos, Kea, Kimolos, Kythnos, Kyra Panagia, Leros, Meganisi, Nisyros, Milos, Mykonos, Paxoi, Paros, Patmos, Poros, Samothrace, Santorini (Thira), Saros, Serifos, Sikinos, Sifnos, Skiathos, Skopelos, Skyros, Spetses, Symi, Syros, Tilos, Tinos, Hydra, Folegandros, Fournoi, Chalki, Psara, and other islands of similar size.
• Group III: Islands under 20 sq. km., with a limit of up to 100 beds, including all islands and insular land areas not included in Groups I and II.

Groups II and III are subject to stricter landscape protection guidelines and limitations on building and capacity of new units, with the aim of preserving their character and promoting milder forms of tourism development. In the most burdened or environmentally sensitive island areas, a maximum limit of 100 beds is provided for new tourist accommodations, while in larger and less burdened islands, units of up to 350 beds may be permitted, depending on the category of the area and the characteristics of each island.

In cases where multiple planning directions or regulations apply to the same area, the most environmentally protective provisions prevail, with the aim of safeguarding the distinctive features and character of the insular space.

Special category: Islands smaller than 1,000 stremmata.

Key provisions of the new Spatial Framework for Tourism in 12 Q&As

1. What is the Special Spatial Framework for Tourism (SSFT)?
The Special Spatial Framework for Tourism is a national plan that defines where and under what rules tourism may be developed in the country.

The SSFT aims to set strategic directions and medium- to long-term objectives at national level for the spatial organisation of the tourism sector, in terms of economic, environmental, and social sustainability.

Its objective is to ensure that tourism development is carried out in a more organised and sustainable manner, while simultaneously protecting the natural environment, local communities, and the distinctive character of each area.

2. Why was there no such framework until today?
The previous framework, adopted in 2009, was annulled by the Council of State for procedural reasons relating to its approval process, not its substantive content.

As a result, for many years the country lacked a modern and updated strategic tool for the spatial organisation of tourism development, during a period of rapid evolution and new challenges such as climate change and pressure on popular destinations.

The new framework fills this gap by establishing clear rules and directions for tourism development at national level.

3. What are its main objectives and strategic directions?
The main objective is sustainable tourism development tailored to the characteristics of each area. It seeks to improve the overall tourism experience, promote diversified forms of tourism beyond the “sun and sea” model, and extend the tourism season.

It also promotes spatial redistribution of tourism activity, support for thematic tourism, integration with the natural and cultural environment, better management of high-pressure destinations, improved coordination of planning instruments, reinforcement of infrastructure, and adaptation to climate change.

4. How are areas categorised?
Areas are classified into five categories based primarily on tourism intensity, taking into account the number of tourist beds relative to land area and population:

(A) Controlled Development Areas
(B) Developed Areas
(C) Developing Areas
(D) Early Development Areas
(E) Special Development Enhancement Areas

Additionally, islands are classified into three groups based on size, with differentiated planning rules.

5. What are the practical implications?
The categorisation determines permitted investments, minimum plot sizes, maximum capacity, and environmental protection conditions.

For example, stricter requirements apply in highly developed areas, while more flexible development is allowed in emerging regions. Islands face differentiated capacity limits depending on their classification and environmental sensitivity.

6. What changes in minimum plot size?
Until detailed spatial planning is completed, minimum plot sizes for off-plan hotel development are set at: 16 stremmata (A), 12 stremmata (B), and 8 stremmata for categories C, D, and E.

Hotels are generally limited to 3–5 star categories in higher development zones.

7. What applies to coastal zones?
A strict protection regime applies. Within 0–25 metres from the shoreline, all new construction is prohibited except for accessibility and emergency-related infrastructure and legally permitted interventions.

8. How are protected areas treated?
Protected areas are subject to enhanced environmental safeguards, stricter building conditions, and requirements for environmental assessment and carrying capacity studies.

9. How are short-term rentals addressed?
The framework provides for regulation of short-term rentals, including zoning restrictions, duration limits, and controls in areas under pressure.

10. What happens to existing permits?
Existing permits and projects that have already entered environmental licensing are not affected. The framework applies to future planning instruments and their alignment with its provisions.

11. How does it interact with other activities?
It provides guidance for coexistence with sectors such as industry, energy, aquaculture, and extractive activities to reduce land-use conflicts.

12. How does it differ from the 2024 draft?
The current text is largely consistent with the 2024 consultation draft, with adjustments mainly reflecting consultation feedback and policy emphasis on environmental protection, particularly in islands and sensitive areas, as well as stricter controls on dispersed building development.