“Spatial Framework for Tourism” divides Greece incl. islands in 5 categories of development

Τhe ministries of Tourism and Environment & Energy presented on Monday the so-called “Special Spatial Planning Framework for Tourism” focusing on sustainable development, destination resilience, and protecting the country’s natural and cultural assets.

The proposed framework is to remain posted until June 25 for a period of public consultation before submission to the National Spatial Planning Council, while the target is the signature of the relevant Joint Ministerial Decree (JMD) by the end of June 2026.

Its central pillar is the transition to a tourism model with a lower environmental footprint, based on the good management of natural resources and the protection of biodiversity.

At the same time, the framework promotes the development of modern and sustainable infrastructure, the strengthening of organized forms of spatial planning with clear environmental standards, and the acceleration of transparent and predictable licensing procedures.

Among its key priorities is the spatial rebalancing of tourism activity, aimed at reducing pressure on saturated destinations while highlighting new, alternative, and thematic tourism destinations.

The new framework aspires to serve as a long-term planning tool that combines economic growth with environmental protection and social cohesion, laying solid foundations for a resilient and sustainable tourism future.

New accommodations only if they are 3 stars and above

A central pillar of the new spatial planning is the way in which it attempts to “measure” the tourist pressure in each region of the country.

The categorization into five basic groups is not only done with general geographical or administrative criteria, but is also based on the proportion of hotel beds per area and per permanent population.

However, its character remains more developmental than environmental, as even in the two most “sensitive” categories concerning saturated and almost saturated tourist areas, the construction of new accommodations is prohibited only if they are 1 or 2 stars/keys, newspaper ethnos.gr stressed.

On the contrary, the construction of new ones is allowed under the condition that they are 3 stars and above and with a limitation on the number of beds since they are islands, while the number of acres that give integrity to these areas is also increasing.

Consequently, the increase in quality makes it difficult for the smaller off-plan tourist presence, but the larger investments still have significant scope for development.

In fact, the number of beds does not include those for short-term rental, with ministry officials noting that this number is dynamic and constantly changing.

Greek Territory divides in five Tourism Categories areas

The new model divides the Greek territory into five categories of areas, attempting a new hierarchy of tourism development based on which areas are considered saturated, which can still accept new investments and which are destined to become the next major tourist poles.

Specific maximum capacity limits are set for several categories of islands and areas, in an effort to limit the uncontrolled creation of large units. These regulations will be activated immediately upon the issuance of the Joint Ministerial Decree, with new investments having to adapt to the new maximum capacity limits and new qualifications from the very next day.

Thus, projects that have already received a building permit or have secured a complete environmental licensing file by yesterday are exempt from the new restrictions, which of course leaves a window for larger-scale projects to proceed, even in areas that under the new conditions are considered saturated.

The new spatial planning also includes a regulation prohibiting uses on the coastline. Specifically, it stipulates that new constructions and developments are prohibited in the first 25 meters from the coastline, with the exception of public utility projects, accessibility or those specifically provided for by the legislation for the coastline.

In addition, it attempts to solve – albeit only in an advisory manner until the relevant legislative regulation is passed – the existing problem with the swimming pools of the accommodations by recommencing the use of seawater in the swimming pools.

The five categories 

The new spatial planning is based on the categorization of the country’s 1,035 municipal units into five basic categories, based mainly on the intensity of tourist activity, that is, the number of tourist beds in relation to the area and the permanent population.

Areas A – Controlled Development: These are the most saturated tourist areas of the country, where the pressure on the environment, infrastructure and carrying capacity is now considered marginal. This category includes 18 Municipal Units, specifically Pieria Beach, part of Skiathos, the Municipality of Corfu, Laganas and the Municipalities of Arkadi and Zakynthos of Zakynthos, Ermoupoli of Syros, Santorini (Thira and Oia), eastern Kos, Mykonos, Afantou, Ialysos and Kallithea of ​​Rhodes, southern Tinos, the Heraklion Peninsula, Malia of Heraklion and Nea Kydonia of Chania.

The strictest restrictions are provided for in this category:

• The minimum area for new tourist facilities outside the plan is increased to 16 acres.
• On the islands of areas A, new units cannot exceed 100 beds.
• In these areas, priority is given mainly to the upgrading and modernization of existing units and not to the creation of new ones. In practice, only new hotels of higher categories, 3, 4 and 5 stars, are permitted, with the regulations being estimated to leave an open window for new major investments even in already saturated destinations.

Areas B – Developed: These are areas where there is already significant tourism development but not to the degree of saturation of areas A. Here it is provided for:

• Minimum integrity for new hotel units outside the plan at 12 acres.
• On category B islands, units of up to 350 beds are permitted.
• In these areas, upgrading investments and special forms of tourism are encouraged.

Areas C – Developing: These areas are considered zones where tourism is developing but has not yet fully dominated the local economy, with the framework being clearly more flexible. For these areas, the following is foreseen:

• Minimum integrity at 8 acres.
• Greater potential for the development of new tourism activities.
• The creation of new infrastructure and accommodation is promoted.

It is estimated that the government sees these areas as an opportunity for the geographical diffusion of tourism, in order to decongest oversaturated destinations.

Areas D – Early Development: These are areas where tourism is still in an early stage. The new framework attempts to give impetus to new destinations, with the aim of exploiting particular natural or cultural characteristics. In this category, the following is foreseen:

• Integrity at 8 acres.
• Softer forms of tourism are encouraged.
• The connection of tourism with local production and cultural identity is promoted.

Areas E – Special Development: The fifth category concerns areas where special forms of tourism are promoted, such as mountain tourism, spa tourism, diving, marine tourism, ecotourism, agrotourism.

Here too, the perfection is defined at 8 acres, but the emphasis falls more on thematic specialization and less on mass tourism.

Categorization of the islands

Particular importance is given to the island area, which is considered the most vulnerable zone of the country to tourist over-exploitation, with the islands – except Crete and Evia – being further categorized based on size.

The first group includes islands over 250 square kilometers, which are considered to have a greater carrying capacity and more developed infrastructure, specifically: Andros, Zakynthos, Thassos, Ikaria, Karpathos, Corfu, Kefalonia, Kythira, Kos, Lesvos, Lefkada, Limnos, Naxos, Rhodes, Samos, Chios..

The framework allows for greater tourism development and higher bed capacity, provided that it is documented through special studies that the infrastructure and natural resources can support it.

In practice, the large islands remain the main recipients of new tourism investments, especially organized hotel units. Specifically, it is stipulated that with the exception of Rhodes and Corfu, as long as they are organized tourist activity hosts (OTDs), only “soft development” is allowed.

On medium-sized islands, from 20 to 250 square kilometers, the so-called “soft development” is promoted, with smaller units and increased restrictions on the capacity of new accommodations.

Specifically, it is planned to limit the construction of new accommodations to 3, 4 and 5 star categories, with a maximum capacity of one hundred beds, while as long as they are ODTs, only “soft development” is allowed.

The islands included in the category are: Agios Efstratios, Aegina, Alonissos, Amorgos, Anafi, Antikythera, Antiparos, Astypalaia, Gavdos, Ithaca, Ios, Kalamos, Kalymnos, Kasos, Kea, Kimolos, Kythnos, Kyra Panagia, Leros, Meganisi, Nisyros, Milos, Mykonos, Paxos, Paros, Patmos, Poros, Samothrace, Santorini (Thira), Saria, Serifos, Sikinos, Sifnos, Skiathos, Skopelos, Skyros, Spetses, Symi, Syros, Tilos, Tinos, Hydra, Folegandros, Fournoi, Halki, Psara and other islands of the same size.

The third category consists of small islands for which the construction of new accommodation is limited to 3, 4 and 5 star categories, with a maximum capacity of one hundred beds, a tourist resort, only “mild development”, while in particular for islands under 1,000 hectares, only mild marine recreation is permitted, such as, for example, diving, swimming, windsurfing, etc., as well as information kiosks/environmental interpretation projects and a tourist residence (1 under conditions) or an organized luxury tourist camp (glamping) for up to 50 people (under conditions) and tourist boat shelters.

Koufonisia – BeachesKoufonisia – Beaches

The issue of short-term leasing remains open
The new spatial planning has also introduced guidelines for short-term leasing, with the issue, however, requiring legislative provision in order to be regulated.

As indicated in the draft Joint Ministerial Decree, this specific activity may be subject to spatially differentiated conditions and restrictions based on the categorization of the areas and/or their specific geographical characteristics. With more specific legislative or regulatory provisions and on a case-by-case basis, measures for the organization and control of the activity may be provided, such as:

• Setting terms and conditions for the provision of properties for short-term rental, in particular in relation to their use as a primary residence,
• Regulating the duration of the activity per year,
• Restablishing geographical zones of prohibition or restriction of the activity,
• Imposing restrictions on the development of new short-term rental supply, in particular in areas with increased pressure or particular geographical characteristics, including cases of newly built housing.

Green light for mining activities

The new spatial planning, however, gives the green light for mining activities even in the most burdened areas, stating that “the exercise of mining activities, the primary processing of mineral raw materials in the mining areas and the provision of the necessary sea outlets for the movement of products within the areas currently classified in categories A’ and B’ or characterized by the A’ level urban planning as priority tourism areas, cannot be ruled out due to the particular characteristics and nature of the above activity.”

PS in plain Greek: there are categories and restrictions for tourism development, only to small investors with specific budget and not for the rich ones because they will build better facilities for middle-class and wealthy tourists because these are the visitors the Greek government wants..