COMMISSION STAFF WORKING DOCUMENT 2025 Rule of Law Report Country Chapter on the rule of law situation in Greece Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2025 Rule of Law Report The rule of law situation in the European Union

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EUROPEAN
COMMISSION
Strasbourg, 8.7.2025
SWD(2025) 908 final
COMMISSION STAFF WORKING DOCUMENT
2025 Rule of Law Report
Country Chapter on the rule of law situation in Greece
Accompanying the document
Communication from the Commission to the European Parliament, the Council, the
European Economic and Social Committee and the Committee of the Regions
2025 Rule of Law Report
The rule of law situation in the European Union
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ABSTRACT
In Greece, following a recent reform, the judiciary is being involved in appointments to the
highest positions in the court system. Initiatives to restore public trust in the justice system
are put forward by the judiciary. The decision to launch disciplinary proceedings against
judges on grounds resulting from the content of their decisions gave rise to a debate within
the magistracy. Major reforms related to rule of law are being undertaken in dialogue with the
Commission and financed under the Recovery and Resilience Facility and supported by the
Technical Support instrument. The implementation of the new judicial map in civil and
criminal justice, and projects to improve the level of digitalisation are advancing well. Efforts
to promote the use of alternative dispute resolution, including plans to revise existing
legislation, are welcomed by businesses. The length of court proceedings still raises serious
challenges and, although initial signals from the implementation of recent reforms are
encouraging, it is still early to assess results.
A new National Anti-Corruption Action Plan is being developed, and the National
Transparency Authority has a new Management Board. Organisational changes in the police
force were made to better combat organised crime and improve disciplinary procedures. An
interoperable common case management system is in preparation as efforts to improve the
track record of prosecutions and final judgments in corruption cases, including in high-level
cases continue. A reorganisation of the police aims to strengthen integrity. The law on asset
declarations was revised to facilitate the process of submission and verification of interest
declarations. Amendments to the rules on political party funding provide clearer grounds for
reimbursement or suspension of state funding. The effective implementation and enforcement
of the rules on lobbying has improved but further measures are needed. Efforts to mitigate
corruption risks in public procurement and improve licensing procedures are seen as positive
developments by businesses.
Resources of the media regulator have been strengthened as the number of employees has
increased but concerns remain regarding its independence, and funding. The new
appointment procedures of administrative bodies introduce positive changes, while concerns
about the legislative framework and political independence of the public service media
persist. Transparency of media ownership is strengthened by the continued operation of the
Registry for Print Media and the Registry for Electronic Press. A new law strengthening
publicity and transparency in the printed and electronic press, reinforcing editorial
independence and institutional safeguards regarding state advertising, byline journalism and
copyright protectionwas adopted in June 2025. The legal framework concerning the right of
access to documents has been improved significantly, while challenges remain in its
implementation. There have been several positive developments in the landscape for
journalist safety, although challenges remain on the ground. Efforts building on measures
taken in previous years amount to important steps concerning legislative and non-legislative
safeguards to improve the protection of journalists, in particular as regards abusive lawsuits.
The positive trend of avoiding expedited legislative procedures continues and the statutory
timeframe for public consultations is being observed, while participation and transparency in
the law-making process could be further improved. Efforts are under way to ensure that the
judiciary is more involved in overseeing the immunity regime for members of the
Government. Previously identified challenges regarding the appointment of members of
independent authorities established by the Constitution remain. Progress with the judicial
investigation following the Pylos shipwreck is a positive development to start addressing
deficiencies in investigating incidents of alleged misconduct involving law enforcement
officers. Engagement with civil society organisations is not yet placed on a regular and
sustained basis.
2
RECOMMENDATIONS
Overall, concerning the recommendations in the 2024 Rule of Law Report, Greece has made:
• Some further progress on continuing efforts to establish a robust track record of
prosecutions and final judgments in corruption cases, including high-level corruption.
• Significant progress on further advancing with the process of adopting legislative and
non-legislative safeguards to improve the protection of journalists, in particular as regards
abusive lawsuits against journalists and their safety, in line with the adopted
Memorandum of Understanding and taking into account European standards on the
protection of journalists.
• Some further progress on stepping up the efforts to ensure the effective and timely
consultation in practice of stakeholders on draft legislation, including by observing the
statutory timeframe for public consultation.
• Limited progress on the evaluation of the existing legal framework for the registration of
civil society organisations and the establishment of a structured dialogue.
On this basis, and considering other developments that took place in the period of reference,
in addition to recalling the relevant commitments made under the Recovery and Resilience
Plan, and the relevant country-specific recommendations under the European Semester, it is
recommended to Greece to:
• Continue efforts to establish a robust track record of prosecutions and final judgments in
corruption cases, including high-level corruption.
• Improve the lobbying framework, including by reviewing the definition of a lobbyist and
ensuring effective implementation.
• Continue ongoing efforts to strengthen legislative and non-legislative safeguards to
improve the safety and protection of journalists, in particular as regards abusive lawsuits,
in line with the adopted Memorandum of Understanding and taking into account
European standards on the protection of journalists.
• Develop a regular and sustained structured dialogue with civil society organisations, and
simplify registration requirements for civil society organisations in view of maintaining
an open framework for them to operate.
3
I. JUSTICE SYSTEM1
Independence
The level of perceived judicial independence in Greece is now low among the general
public and continues to be average among companies. Overall, 38% of the general
population and 49% of companies perceive the level of independence of courts and judges to
be ‘fairly or very good’ in 20252
. The perceived judicial independence among the general
public has slightly decreased in comparison with 2024 (40%) and has significantly decreased
in comparison with 2021 (55%). The perceived judicial independence among companies has
slightly increased in comparison with 2024 (48%) and is lower than in 2021 (60%). Justice
stakeholders consider that public perceptions are affected by several high-profile cases and
agree that restoring trust in the judicial system and improving perceptions should be a
priority3
.
Following a recent reform, the judiciary is being involved for the first time in
appointments to the highest positions in the court system. In May 2025, the new provision
foreseeing the involvement of the administrative plenaries of the three highest courts in the
appointment procedure of their Presidents and Vice-Presidents4
was further amended
following a proposal submitted by the Supreme Court and the Council of State regarding
mainly the voting process5
. In June 2025, the administrative plenary of the Supreme Court
submitted to the Government its non-binding opinion for the appointment of its new
president, vice-presidents and the Prosecutor General6
. A wide range of justice stakeholders
have welcomed the reform. Some consider that the involvement of the judiciary could be
further strengthened, for instance by introducing an obligation to choose a candidate only
from among the shortlisted candidates put forward by the judiciary7
. Such a further reform
would require constitutional revision8
. The Government has already announced its intention
1
An overview of the institutional framework for all four pillars can be found here.
2
Figures 50 and 52, 2025 EU Justice Scoreboard and Figures 51 and 53, 2023 EU Justice Scoreboard. The
level of perceived judicial independence is categorised as follows: very low (below 30% of respondents
perceive judicial independence as fairly good and very good); low (between 30-39%), average (between 40-
59%), high (between 60-75%), very high (above 75%).
3
Country visit Greece, Ministry of Justice, Prosecutors, Supreme Court, Court of Audit, Associations of
judges and Athens Bar Association.
4
This reform fully implemented previous recommendations addressed to Greece to involve the judiciary in
appointments to the highest positions in the judiciary. 2024 Rule of Law Report, Greece, pp. 3-4.
5
The amendment introduces limitations to the pool of candidates linked to seniority and a minimum number
of votes that could be casted per judge. It also extends the scope of the reform to the appointment of the
General Commissioner of the State. Law 5197/2025, Article 36.
6
Supreme Court (2025b). The next steps include a non-binding opinion by the Conference of Presidents of
Parliament and a proposal by the Minister of Justice before the final decision is taken by the Council of
Ministers.
7
Country visit Greece, Court of Audit, Prosecutors, Athens Bar Association, Association of Judges and
Prosecutors and the Association of Judges of the Court of Audit. The Association of Administrative Judges
referred to a system where appointments are decided by Parliament based on a list of candidates selected by
a body, which also includes judges in its composition. The Association of Judges of the Council of State also
welcomed the reform and underlined the need for the executive to follow in practice the opinions of the
judiciary, Association of Judges of the Council of State (2025), written input, p. 2.
8
Constitution of Greece, Article 90 para 5. See also 2023 Rule of Law Report, Greece, p. 4.
4
to include this in the forthcoming revision of the Constitution, scheduled to begin later this
year, as part of the efforts to restore public trust in the judiciary9
.
Initiatives aiming to restore public trust in the justice system are put forward by the
judiciary. In April 2025, the Association of Judges and Prosecutors put forward to
representatives of all political parties their proposals aiming to reinforce the independence of
the judiciary, including a proposal for a post-retirement cooling off period10
. According to
judges’ associations and the Bar, the introduction of a rule preventing judges from holding
public positions during a period of three years after their retirement could strike a fair
balance, allowing the public sector to benefit from judges’ status and experience, while
avoiding perceptions of interdependence with the executive11
. Representatives of the
Supreme Court and the Council of State consider that the existing guarantees of
independence and the high ethical standards inherent to judicial functions render the
introduction of a cooling-off period unnecessary12
. The Government is reflecting on a
legislative framework to allow for post-retirement activities for judges based on objective,
transparent criteria13
.
The decision to launch disciplinary proceedings against judges on grounds resulting
from the content of their decisions gave rise to a debate within the magistracy. In March
2025, controversy arose when the President of the Supreme Court ordered the Inspection
Board to assess the possible disciplinary liability of members of the judiciary because of their
decision not to impose procedural coercion measures to the accused in an ongoing criminal
case. Disciplinary liability of a judge resulting from a judicial decision must be seen as an
exceptional measure, given its potential consequences for judicial independence.
Associations of judges and the Bar reacted by reiterating that judicial decisions, even if they
contain legal or factual errors, are only subject to legal remedies and cannot result in
disciplinary action against the judge who took them14
. The Supreme Court rejected the
criticism, noting that judges’ freedom of opinion does not mean that they are not subject to
any control15
.
Quality
The implementation of the new judicial map in civil and criminal justice is advancing
well. The consolidation of the first degree of jurisdiction with the merging of the magistrate’s
9
Country visit Greece, Ministry of Justice.
10
Association of Judges and prosecutors (2025a).
11
The appointment, in October 2024, of a retired senior prosecutor as the head of the judicial police following
a required two-year cooling off period was presented as setting a good precedent, Law 5049/2023, article 3
(3). Country visit Greece, Athens Bar Association, Court of Audit, Association of judges and prosecutors;
Association of Administrative Judges, Association of Judges of the Court of Audit.
12
Country visit Greece, Supreme Court and Council of State.
13
Greek Government (2025a).
14
Association of Judges and Prosecutors (2025a), Association of Administrative Judges (2025a), Association
of Prosecutors (2025) and Association of Judges of the Council of State (2025a); Plenary of the Bar
associations (2025). A similar decision of the President of the Supreme Court in June 2024 had also
provoked similar reactions. Association of Judges and Prosecutors, Association of Prosecutors and Athens
Bar association (2024).
15
Supreme Court (2025a). In response, the Code of Criminal Procedure was amended to foresee the right of
senior prosecutors to ask for the judicial review of decisions regarding coercive measures (Law 5197/2025,
Article 58).
5
courts and the courts of first instance entered into force in September 202416
. A first set of
necessary amendments to the Codes of Civil and Criminal Procedure and the Courts Code
was adopted, while further legislative changes are expected, including in relation to the career
of former magistrates and the process for their reclassification as judges. A survey conducted
by the World Bank among members of the judiciary and court staff impacted by the new
judicial map, as well as initial statistical data collected by the Government, already showed
promising results of the reform17
. Prosecutors noted that the increase in court hearings
resulting from the merging of first instance courts requires an increase in the number of
prosecutors18
.
Projects to improve the level of digitalisation are advancing. In criminal proceedings,
remote hearings of witnesses and the accused were introduced, while the public can monitor
online the progress of cases. In December 2024, the first remote hearing took place in
administrative justice. Major projects, funded by the Recovery and Resilience Facility,
including the upgrading of case management systems in administrative, civil and criminal
justice, are expected to be completed at the beginning of 2026 and to cover almost all
workflows carried out by courts19
. While lawyers recognise the progress made, they highlight
that it is still limited to certain courts, and the parallel use of electronic and paper systems
creates practical difficulties for practitioners. The application e-pinakio, which allows
lawyers to monitor in real time the daily agenda of court hearings before civil, criminal and
administrative courts, has become operational. The Bar welcomed this development which
facilitates their work20
. Access to case-law is also progressing. A majority of anonymised
judgments of the highest courts are available on their respective websites21
, but not yet the
majority of those issued by ordinary courts22
. Ongoing projects intend to digitalise access to
the case-law of ordinary courts, and thus also address the shortcomings identified by the
European Court of Human Rights in that respect23
. The Court of Audit is developing an AI
tool to assist judges in preparing draft decisions24
. The digitalisation of the notary profession
is at an adequate level and will further advance with the creation of the electronic registry of
wills25
.
Efforts to promote the use of alternative dispute resolution, including plans to revise
existing legislation, are welcomed by business stakeholders. While there are already
promising results from the use of mediation in family and inheritance disputes, more
generally the efforts to promote the use of alternative dispute resolution tools and provide
incentives have been rather limited26
. The Government is moving forward with plans to
revise the existing framework and adopt codified legislation for alternative dispute resolution,
16
2024 Rule of Law Report, Greece, p. 7.
17
Greek Government (2025), written input, pp. 16-20. The Greek Government estimates that the reform has
already increased the productivity of courts. The first statistical data relating to the implementation of the
judicial map are encouraging and confirm initial estimations, Greek Government (2025a).
18
Country visit Greece, Prosecutors.
19
Greek Government (2025), written input, pp. 34-39.
20
Athens Bar Association (2025) and Country visit Greece; CCBE (2025), written input, p. 96.
21
Council of State (2024); Greek Government (2025), written input, 26-28.
22
2025 EU Justice Scoreboard, Figure 47. Athens Bar Association (2025).
23
Judgment of ECtHR, application 51774/17, Tsiolis v. Greece, paras 75-81 and 84-86.
24
Country visit Greece, Court of Audit and Association of judges of the Court of Audit.
25
The platform intends to speed up the procedure of publication of wills and contribute to the decongestion of
courts. It is estimated that there are currently 40 000 requests for publication pending before the Athens
courts. Country visit Greece, Athens Association of Notaries.
26
2024, 2025 EU Justice Scoreboards, Figures 28 and 26 respectively.
6
including judicial and extra-judicial mediation and arbitration, by September 2025. A special
secretariat was established at the Ministry of Justice for this purpose27
. Business
representatives strongly support efforts to promote alternative dispute resolution28
.
The highest courts appointed spokespersons to ensure better communication with the
public. The Supreme Court, the Council of State and the Court of Audit designated judges in
charge of communicating with the media and providing information on the Courts’ activities
and case-law, including on important cases29
. The Council of State introduced as a good
practice the issuing of statements by its President to announce important judgments of public
interest and of publishing clear and reader-friendly information about these judgments in the
form of questions and answers30
.
Efficiency
The length of court proceedings still raises serious challenges and, although initial
signals from the implementation of recent reforms are encouraging, it is still early to
assess results. The disposition time in litigious civil and commercial cases at first instance
courts has further deteriorated, reaching 771 days in 2023 (compared to 746 days in 2022),
the longest in the EU, while the clearance rate for litigious civil and commercial cases
slightly decreased to 92% (93% in 2022), still remaining clearly below 100% and among the
lowest of the EU. For administrative cases, the disposition time at first instance courts has
further improved to 439 days in 2023 (464 days in 2022). In parallel, their clearance rate
remains among the highest of the EU (121%, compared to 127% in 2022). On the contrary,
proceedings before the Council of State remained very long, at 1 232 days in 2023 (1 239
days in 2022)31
. All stakeholders consider the persisting delays in the administration of
justice to be the biggest challenge for the judicial system32
. The length of judicial proceedings
is pivotal for the correct functioning of the economy and good performance in other
dimensions33
. 56.2% of companies in Greece consider lengthy judicial proceedings as a major
obstacle to business growth34
. There are positive signals from the implementation of several
recent reforms, including the new procedure before the Council of State and the transfer of
some categories of non-litigious cases from courts to lawyers, but more time is needed to
measure their impact on the overall efficiency of justice. Lawyers and notaries noted that
further categories of non-litigious cases could be transferred to them in order to further
contribute to decongesting civil courts and improve their efficiency35
. The planned revision
of the Code of Civil Procedure is also expected to speed up the administration of justice and
27
Greek Government (2025), written input, pp. 50-51.
28
Country visit Greece, business associations.
29
Greek Government (2025), written input, pp. 25-26. Association of Judges of the Council of State (2025),
written input, p. 1.
30
Council of State (2025a, b).
31
2025 EU Justice Scoreboard, Figures 5, 7, 8, 10 and 11.
32
Country visit Greece, Court of Audit, Supreme Court, Council of State, Associations of judges, Association
of notaries, Athens Bar Association, Business Associations; National Human Rights Commission, Civil
Society. Association of Judges of the Council of State (2025), written input, p.1.
33
IMF (2025), Enhancing Judicial System Efficiency in Greece: Drivers and Economic Impact, p. 6; European
Semester (2025) Greece, pp. 7, 10, 11 and SWD(2025)208, pp. 9 and 14.
34
Hellenic Federation of Enterprises (SEV), 2025 Business Pulse. For medium enterprises the percentage
reaches 80%.
35
Country visit Greece, Association of notaries and Athens Bar Association.
7
in particular address existing delays in scheduling trial dates, an issue highlighted by all
stakeholders36
.
Responsibility for establishing a penalty of salary reduction in case of unjustified delays
was amended to ensure a more effective implementation. A reduction of salary may be
applied to judges who, due to their own fault, fail to fulfil their judicial duties. This includes
repeated unjustified delays in drafting decisions and handling cases. The power to impose
such decisions has been transferred from the presidents of the courts where these judges serve
to the President of the Supreme Court for civil and criminal justice and to the General
Commissioner of State for administrative justice. Judges concerned have a right to appeal
within ten days before the competent Supreme Judicial Council37
.
II. ANTI-CORRUPTION FRAMEWORK
The perception among experts, citizens and business executives is that the level of
corruption in the public sector is high. In the 2024 Corruption Perceptions Index by
Transparency International, Greece scores 49/100 and ranks 21st
in the European Union and
59th
globally38
. This perception has been relatively stable over the past five years39
. The 2025
Special Eurobarometer on Corruption shows that 97% of respondents consider corruption
widespread in their country (EU average 69%) and 66% of respondents feel personally
affected by corruption in their daily lives (EU average 30%). As regards businesses, 97% of
companies consider that corruption is widespread (EU average 63%) and 75% consider that
corruption is a problem when doing business (EU average 35%). Furthermore, 33% of
respondents find that there are enough successful prosecutions to deter people from corrupt
practices (EU average 36%), while 24% of companies believe that people and businesses
caught for bribing a senior official are appropriately punished (EU average 33%)40
.
A new National Anti-Corruption Action Plan (NACAP) is being developed. The National
Transparency Authority (NTA) has begun preparations for a new NACAP covering 2026–
2029. It has carried out a survey involving citizens, public servants, auditors, academics and
policy representatives and is working on a comprehensive mapping of corruption risks, which
it expects to finalise by the end of June 2025. It will also engage in an ex post external
evaluation of the current NACAP (2022–2025). A small number of actions relating to
ongoing projects financed under the Recovery and Resilience Plan may be rolled over from
the current Action Plan to the new one. The new Action Plan is expected to be in place in the
first half of 2026 following Ministerial Council approval41
.
A new Management Board was appointed to the National Transparency Authority. The
NTA’s new Management Board, made up of the President and four Members, was
established in September 2024. A new Governor is expected to be appointed by the end of the
36
Country visit Greece, Supreme Court, Athens Bar Association and Association of Judges and prosecutors.
IMF (2025), p. 19.
37
Article 50 of Law 4938/2022. Greek Government (2025), written input, p. 23.
38
The level of perceived corruption is categorised as follows: low (above 79); relatively low (between 79-60),
relatively high (between 59-50), high (below 50).
39
In 2020 the score was 50, while in 2024, the score is 49. The score significantly increases/decreases when it
changes more than five points; improves/deteriorates (changes between 4-5 points); is relatively stable
(changes from 1-3 points) in the last five years.
40
Data from Special Eurobarometer 561 (2025) and Flash Eurobarometer 557 (2025).
41
Greek Government (2025), written input p.61; Country visit, Greece, NTA.
8
summer 202542
. Recruitment for inspectors-auditors and administrative staff continued at
both central and regional level. More posts are expected to be taken up during 2025 to fill the
vacant posts (139 compared to 122 in March 2024 out of a total of 503 posts)43
. To attract
more staff, a flexible framework is already in place for mobility of inspectors-auditors carried
out exclusively by the NTA, with secondments through a single decision of the Governor.
The NTA is still looking for new premises that can house all its staff together at one location,
which is important to improve coordination and efficiency44
.
An interoperable common case management system is in preparation as efforts to
improve the track record of prosecutions and final judgments in corruption cases,
including in high-level corruption cases, continues45. Investigations on corruption offences
by the Financial Police Division in 2024 increased slightly to 112 compared to 2023 (106
cases). The data provided by the Economic Crime Public Prosecutor’s Office show that it
handled fewer corruption offences (bribery, misappropriation and embezzlement) in 2024
than in 2023 (71 compared to 157). Official aggregated statistics show that the number of
ongoing and concluded prosecutions and the number of convictions for corruption offences,
including at high-level, in 2024 was slightly lower than in 202346
. Two foreign bribery cases
are still at the preliminary investigation phase47
. The Government is in the process of
developing an interoperable common corruption case management register enabling all
competent authorities to centrally record and track corruption cases from the start of an
investigation to the sentencing, thereby gaining a complete picture of the timelines and state
of play of these cases. The authorities consider that this will improve the reliability of data
and should help in tackling corruption cases more efficiently. The system’s legal and
technical specifications are being drafted and a tender is expected to be given by the end of
2025 and developed in 202648
. In addition, in 2025 the Criminal Code was amended to
include a distinct ‘obstruction of justice’ offence and expand the ‘favourable measures’
(mitigating circumstances) for offenders who cooperate with the authorities and help uncover
42
National Transparency Authority (2025). The new Management Board was approved by the Parliament’s
Institutions and Transparency Committee and established by the Government on 30 September 2024. Greek
Government and CSOs (2025), written and additional input, p. 59 and p. 3 respectively. Country visit,
Greece, Ministry of Interior and NTA.
43
On 13 June 2025 the final results for the 53 positions for secondments of Inspectors-Auditors were
published.
44
The NTA is currently operating out of five buildings across Athens. The occupancy rate for inspectors-
auditors is at 74% (238 out of 320 posts). A call for the recruitment of 53 inspectors-auditors published in
July 2024 is still ongoing. Thirteen administrative staff are expected to be recruited in 2025. A request to
cover 27 posts via secondment/mobility of civil servants is expected to be concluded in 2025. Greek
Government (2025), written input, p. 55. Country visit, Greece, Ministry of Interior and the NTA.
45
The 2024 Rule of Law Report recommended to Greece to “continue efforts to establish a robust track record
of prosecutions and final judgments in corruption cases, including high-level corruption”.
46
In 2024, there were no concluded prosecutions for bribery of political officials (same as 2023), judges (1
case in 2023) or employees of international organisations (2 cases in 2023). Ongoing prosecutions included
1 case for bribery of political officials (same as 2023), 1 for bribery of judges (2 in 2023) and 2 for bribery
of employees of international organisations (4 in 2023). At appeals court level, there were no convictions for
bribery of national public officials compared to 4 in 2023. There were 2 acquittals for bribery of judges and
employees of international organisations (none in 2023). Greek Government (2025), written input, Annex I.
47
Country visit, Greece, Ministry of Justice. On 21 November 2024, the NTA, together with the Diplomatic
Academy of the Ministry of Foreign Affairs, organised an online webinar on the OCED Anti-Bribery
Convention that analysed the main points of the OECD Convention and provided an overview of national
initiatives for its effective implementation.
48
Greek Government (2025), written input, p. 54 and Country visit Greece, Ministry of Justice and additional
written input, pp. 17-23.
9
complex corruption and organised crime offences49
. The authorities expect that these recent
developments should contribute to an improved track record. Cooperation between the EPPO
and the police and the national prosecution offices is overall satisfactory50
. Considering these
developments, there has been some further progress in the implementation of the
recommendation made in the 2024 Rule of Law Report.
A reorganisation of the police aims to strengthen integrity and improve disciplinary
procedures. In March 2025, a law was adopted to reorganise the Hellenic Police Corps51
. A
new Directorate of Ethics and Internal Control aims to strengthen integrity, professionalism
and accountability in policing, streamline the management of complaints against the police
and strengthen the independence of internal audits. In addition, in November 2024, the rules
on disciplinary procedures in the police were simplified, speeding-up their administration and
facilitating the dismissal or suspension of officials from active service for serious disciplinary
or criminal offences. In 2024, 87 police officers were suspended from service, a significant
increase of 174% from the 32 cases in 202352
. In addition, guidelines outlining the procedures
for the handling of corruption incidents and integrity within the Police are currently under
review and will be incorporated into police ethics courses53
. The reorganisation also
incorporated police dealing with corruption in a new Directorate for Combating Organised
Crime to enable a more strategic approach to combating organised crime.
A revised law on asset declarations aims to facilitate the process of submission and
verification of declarations. A revised law on asset declarations entered into force in August
202454
. It aims to strengthen transparency, improve compliance, and simplify and streamline
the process of asset declaration and financial oversight by digitalisation of the submission
process, automatic filling, transfer and extraction of the data, and greater interoperability of
the electronic platform (‘e-pothen’). The new system is designed to enable the authorities to
uncover discrepancies, unexplained wealth and hidden assets more quickly and efficiently.
The law expands the scope of persons covered, the scope of the assets and interests to be
declared both in Greece and held abroad and introduces administrative sanctions for non-
compliance by financial institutions55
. As the Parliament Committee for the Investigation of
Declarations of Assets (CIDA) is also tasked with supervising and coordinating the other
49
The Criminal Code was changed through Law 5172/2025 and Law 5187/2025. In addition, the authorities
are preparing an extension of the protections under Law 4990/2022 to persons reporting or disclosing
information in the field of cryptocurrency markets. Ministry of Justice and Ministry of Interior (2025),
additional written input, pp. 30 and p. 1 respectively.
50
EPPO (2025a), written input, p. 16. In 2024, EPPO investigated 7 corruption cases in Greece that amount to
4.67% of EPPO cases in Greece. EPPO (2025), p. 35.
51
Law No. 5187/2025; Presidential Decree 29/2024.
52
The changes to the Disciplinary Regulations were made through Presidential Decree 61/2024 of 5 November
2024. The Chief of Police issued detailed guidelines on the proper implementation of the new disciplinary
rules on 10 November 2024. Greek Government (2025), written input, pp. 58 and 63. Also Country visit
Greece, Ministry of Citizen Protection, Hellenic Police, and Internal Affairs Unit of Law Enforcement
Bodies.
53
Ministry of Citizen protection and Hellenic Police (2025), additional written input, p.2.
54
Law 5130/2024. Two ministerial decisions providing instructions on implementation for persons covered
and on the interoperability of financial institutions were issued the following October Law 5130/2024.
Decision GG B’ 5919/23.10.2024 and Decision GG B’ 5921/23.10.2024. Greek Government (2025), written
input, p. 69.
55
At the end of 2024, 340,000 declarations had been submitted making up 60% of the total number of liable
persons. An open tender to upgrade the ‘e-pothen’ was published in December 2024. Greek Government,
written input, pp. 62, 69 and 87. Country visit Greece, Ministry of Justice, Parliament Audit Committee and
NTA. See also Committee for the Investigation of Declaration of Assets (2025), pp. 8-12.
10
bodies involved in auditing asset declarations, it has requested more resources56
. In 2024, the
Court of Audit issued six rulings and had nine pending applications for unjustified assets,
including concerning a former mayor and a former member of parliament57
.
The effective implementation and enforcement of the rules on lobbying has improved
but further measures are needed. Since the transparency register became operational in
December 2022, entries in it have only increased modestly, from 20 in July 2024 to 39 as of
April 2025, of which 33 lobbyists are active (compared to 17 on 31 December 2023) and 318
institutional bodies (of which 278 have an active tenure). Annual declarations of lobbyists
and public officials were only published for the first time in mid-2024 and do not seem to
cover all those obliged to submit a report58
. Civil society organisations have also raised other
shortcomings about the enforcement of the lobbying rules59
. Acknowledging the NTA’s
outreach efforts, there is still room for increasing awareness about the law, even among
public officials. There is increasing understanding, including amongst the authorities, that the
law should not only cover lobbying carried out by professional lobbyists (on behalf of third
parties) but also by ‘in-house’ lobbyists. This was specifically highlighted in the NTA’s
February 2025 report on lobbying which recommended an extension of the scope of the law
as regards the definition of ‘lobbyist’, in addition to a change in culture, a commitment to
apply the rules by all parties involved and continuous monitoring and review of its
procedures and regulations60
. The authorities have indicated openness to reassess the
situation, possibly leading to a review of the legal framework61
.
Amendments to the rules on political party funding provide clearer grounds for
reimbursement or suspension of state funds. In December 2024, amendments were made
to the law on electoral state funding of political parties and party coalitions62
. These changes
clarify that state funding for an electoral contest must be returned in case of non-participation
in an election and that state funding will be suspended until certain criteria are met in cases
where a party or coalition leader is convicted of a criminal offence. The objective is to
enhance the integrity of political parties and ensure proper use of public funds. This has
already been put into practice with a decision to suspend a substantial amount of funds to a
56
Besides CIDA, the Anti-Money Laundering Authority, the NTA, and the Internal Affairs Service of the
Security Forces are responsible for auditing the asset declarations of persons falling within the scope of their
mandate. CIDA is also responsible for auditing political party finances and coordinates and supervises the
other auditing bodies and only has 20 members of staff. It is dealing with a 7% to 10% increase in audits.
High-risk verifications amounted to 5% (4% in 2023). 109 (out of 9 532) cases of misconducts sent to the
prosecutor concerned politically exposed persons or persons with top executive functions. Greek
Government (2025), written input, p. 87. Country visit, Greece, CIDA.
57
Greek Government (2025), written input, Annex 1, Table C. Country visit Greece, Court of Audit.
58
Law 4829/2021 obliges high-level officials with executive and legislative functions to declare their contacts
with lobbyists while registered interest representatives must submit annual declarations for general activities
and for lobbying activities targeting the legislature and executive.
59
As well as concerns on the low number of registrations and number of annual declarations posted, they
complain about the lack of detail about the objectives of the contacts made and a general lack of awareness
about the law. Vouliwatch (2024), Civil Society Report (2025), written and additional input, pp. 35-36 and
p. 1 respectively.
60
NTA (2025b), p.16. Vouliwatch continues to advocate for a legislative change. Civil Society Report (2025),
written and additional input, pp. 35-36 and p. 1, respectively. Country visit Greece, Ministry of Interior,
NTA, and Civil Society.
61
The authorities suggested that this might be linked to the expected transposition of the proposed EU
directive on interest representation carried out on behalf of third countries. Country visit, Greece, Ministry of
Interior and NTA.
62
Law 5166/2024.
11
beneficiary political party late last year63
. In 2024, CIDA reported a continued improvement
in the level of compliance with the rules on political party financing, similarly to the previous
year. It found no substantive violations of the relevant legislation in its audits of the parties
that participated in the two elections in 202364
. The audit of parties that participated in the
June 2024 European Parliament elections is not yet finalised.
Efforts to mitigate corruption risks in public procurement and improve licencing
procedures for businesses continued. Businesses’ attitudes towards corruption in the EU
show that 48% of companies in Greece (EU average 25%) think that corruption has prevented
them from winning a public tender or a public procurement contract in practice in the last
three years65
. The Single Market and Competitiveness Scoreboard on access to public
procurement in Greece reports 49% of single bids for 2023 (EU average 29%). Public
procurement is seen to be particularly vulnerable to corruption, collusion and conflicts of
interest, which, when combined with delays in the approval of licenses or permits, may act as
a disincentive to participate. 39% of companies perceive the level of independence of the
public procurement review body (Single Independent Public Procurement Authority) as very
or fairly good66
. The Hellenic Single Public Procurement Authority (HSPPA) reported
receiving complaints relating to collusion, conflicts of interest and other practices that
undermine competition67
. The authorities have taken various measures to mitigate these risks
in 2024. The NTA issued a Code of Conduct for Integrity Advisors68
and finalised a Public
Procurement Risk Management Framework and a comprehensive Risk Registry that will feed
into a new code of conduct being drafted for officials working in procurement units69
. In
January 2025, it published a new Code of Conduct for Seconded Officials and Special
Advisers serving in private offices and the Presidency of the Government70
. The Hellenic
Competition Commission issued a Guide for Contracting Authorities on Detecting and
Preventing Collusive Practices in Public Procurement Procedures. It also introduced a
dedicated digital whistleblowing system specifically designed for contracting authorities to
63
Decisions to suspend state funding and financial support are taken by an absolute majority of the total
number of Members of Parliament and transmitted to the Chairman of the Parliamentary Ethics Committee.
Court of Audit (2024), p. 92. Also, Country visit Greece, Court of Audit and CIDA.
64
Greek Government (2025), written input, pp. 70 and 86. Country visit Greece, CIDA.
65
Flash Eurobarometer 557 on Businesses’ attitudes towards corruption in the EU (2025). This is 23
percentage points above the EU average.
66
Figure 59, 2025 EU Justice Scoreboard.
67
Based on around 100 complaints in 2024, the HSPPA detected violations of procurement legislation such as
direct awards, negotiated procedure without prior publication, or the successive extension of a contract to a
specific operator. Concerns covered sectors including health, civil protection port services and water supply,
including some projects co-financed by EU funds and reported to the EPPO. HSPPA (2025), written input,
pp. 9-10 and 12 and Country visit Greece, HSPPA.
68
According to their Code of Conduct, the Integrity Advisor’s mission is to ensure a coherent framework for
the effective protection of employees who identify, suffer the consequences of or wish to report integrity
breaches, as well as to provide support, information and advice on ethics and integrity issues in their
workplace. The NTA issued a Practical Guide for Integrity Advisors in December 2024. Greek Government
(2025), written input, p. 66.
69
This project was developed by the NTA, HSPPA and the Ministry of Development (General Secretariat of
Commerce) in cooperation with OECD and funded by the EU Technical Support Instrument. 2024 Rule of
Law Report, Greece, p. 18.
70
Greek Government (2025), written input, pp. 65-67. A Code of Conduct for Internal Auditors and 54 codes
of conduct for sports federations were also issued. In its 2024 report (base year 2023), the Court of Audit
highlighted that apart from the 2022 Code of Ethical and Professional Conduct for Public Sector Employees,
most ministries do not have specific codes of conduct and continue to exhibit weak or inadequate anti-fraud
and corruption systems. Court of Audit (2024), pp. 91-92.
12
report bid rigging in public procurement procedures71
. An Integrated Licencing and
Inspections Management System (ILIMS) was introduced to standardise and digitalise
licencing processes and actions serving citizens, businesses and the public administration.
This should ensure more transparent and efficient communication between the competent
authorities and economic operators which would also help to detect and reduce potential
corruption practices. The ILIMS became operational on 5 February 2025 and so far, 30 000
licencing actions have been finalised, mostly by businesses. Businesses consider this to be a
positive development72
.
III. MEDIA PLURALISM AND MEDIA FREEDOM
Resources of the media regulator have been strengthened as the number of employees
has increased but concerns remain regarding its independence and funding. Additional
positions have been filled at the end of 2024 for the National Council for Radio and
Television (NCRTV), and more are expected to be filled at the end of the first semester of
202573
, which is a welcomed development. Challenges persist in relation to its operational
independence and efficiency, the adequacy of its funding and the scope of its competences74
.
The Council of State is expected to rule on the legality of the new composition of the
NCRTV75
. The NCRTV notes that its dependence on ministerial approval for various
regulatory and personnel matters hinders its capacity to effectively regulate the national
audiovisual sector. Existing initiatives such as the “Code of Conduct” have been unable to
take effect, as the necessary action by the Ministry has been outstanding since last year, with
no administrative or legal remedy to expedite the process76
. The 2025 Media Pluralism
Monitor (MPM) maintains its previous assessment of the independence and effectiveness of
the Media Authority as high risk77
. Strengthening of the NCRTV is planned through the
implementation of the law currently being developed to ensure compliance with the European
Media Freedom Act78
.
The new appointment procedures of administrative bodies introduce positive changes,
while concerns about the legislative framework and political independence of the public
service media persist. The selection process applicable to the CEO and Board Members of
the Hellenic Radio and Television Corporation (ERT) introduced by the Law on selection of
administrations of public bodies has been welcomed as more transparent and meritocratic, but
as reported by stakeholders, it does not fully safeguard ERT’s autonomy since there is still
significant leeway for appointments based on political considerations79
. The procedure for the
selection is supervised by the Supreme Council for Civil Personnel Selection and includes
71
Greek Government (2025), written input, p. 80.
72
Greek Government (2025), written input, p. 91. Country visit, Hellenic Single Public Procurement
Authority, the NTA and business associations.
73
Country visit Greece, NCRTV.
74
Country visit Greece, ERT and journalists’ associations.
75
Country visit Greece, NCRTV. See also 2024 Rule of Law Report, Greece, pp. 19, 26-27 and below, Pillar
IV on independent authorities.
76
Country visit Greece, NCRTV and ERT. According to the Government, the extended timeline on the
adoption of the Code aimed to ensuring the optimal outcome, including a thorough public consultation
process; Greek Government (2025a).
77
Media Pluralism Monitor (2025), p. 15.
78
Greek Government (2025a).
79
Law 5062/2023; Country visit Greece, ERT and journalists’ unions; International Press Institute (2025),
written input, pp. 14-15; 2024 International Press Institute (2024) Media Capture Monitoring Report Greece,
pp. 4, 12.
13
consultation with the Parliament’s cross-party Committee on Institutions and Transparency80
.
However, it is the Deputy Minister to the Prime Minister who proposes one of the three pre-
selected candidates. Also, some selection procedures for Board Members have prioritised
experience in the broadcasting sector, while others have been criticised as prioritising
political affiliations81
. Moreover, ERT continues to be subject to administrative oversight by
the General Secretariat for Communication and Media, which some stakeholders criticise as
the latter is placed under the responsibility of the Office of the Prime Minister82
. The current
framework provides that Board Members can only be dismissed for performance-related
reasons stipulated in their “performance contract”83
. The 2025 Media Pluralism Monitor has
highlighted a continued lack of safeguards against dismissal of Board Members and
politically motivated replacements and has adjusted its risk score from medium to high risk
with regard to the independence of public service media84
.
Transparency of media ownership is strengthened by the continued operation of the
Registry for Print Media (MET) and the Registry for Electronic Press (MHT). The legal
framework in place85
, which entails that only media appearing in the registers are eligible to
benefit from state advertising, as well as media legislation containing specific ownership
limitations to prevent horizontal concentration in the media market86
, are positive
developments for the improvement of transparency of media ownership. The operation of the
current system of audits based on random sampling, including on-site audits following
complaints87
, reinforces the reliability of both registries. The 2025 Media Pluralism Monitor
(MPM) has maintained its medium to low-risk score for this area88
.
In June 2025, a new law was adopted to strengthen publicity and transparency in the
printed and electronic press and reinforce editorial independence and institutional
safeguards regarding state advertising, byline journalism and copyright protection89
.
The law was adopted with the objective to align national legislation with the European Media
Freedom Act. It further streamlines the operation of the two Registries for Print Media and
Electronic Press, aiming to reduce administrative burden, simplify registration and renewal
procedures, and ensure credibility and transparency in the printed and electronic press. The
law also expands existing provisions to include electronic press with digital audio files like
podcasts and clarifies the conditions for registration, including journalist-signed articles and
circulation proof. Additionally, it extends deadlines for registration applications, allows for
faster reapplication after rejection, reinforces checks on registered media, and amends
existing provisions related to newspaper registration and sanction procedures. According to
the Government, the most important regulatory amendments introduced by the new law
include the obligation of signed articles from journalists both offline and online, the
80
The Chair of the Board and the CEO of ERT were appointed pursuant to the new selection procedure in
September 2024 and February 2025 respectively. Greek Government (2025a).
81
Country visit Greece, ERT and journalists’ unions; International Press Institute (2025), written input, p. 14-
15; International Press Institute (2024), p. 15.
82
International Press Institute (2024), p. 15. See also, 2024 Rule of Law Report, Greece, pp 20-21.
83
According to the Government, there have been no arbitrary dismissals of Board members. The appointments
of Board Members in 2024 were made following the expiry of the term of office of the previous members.
Greek Government (2025a).
84
Media Pluralism Monitor (2025), p. 28.
85
Law 5005/2022.
86
Laws 3592/2007 and 2328/1995.
87
Country visit Greece, GS Media and Communication.
88
Media Pluralism Monitor (2025), Greece, p. 18.
89
Law 5212/2025; Greek Government (2025a).
14
clarification of definitions and the substantial increase of audits, administrative audits and on-
site audits.
The legal framework concerning the right of access to documents has been improved
significantly, while challenges remain with its implementation. Stakeholders have
continuously highlighted persistent delays, unresponsiveness or refusals in response to
requests for information or access to documents90
. The Code of Administrative Procedure
was amended to strengthen the public’s right to access administrative documents by
clarifying that they can be requested either anonymously or with identification by any
individual or legal entity, both in person and electronically, and without the previous
prerequisite of “reasonable interest”, unless the document contains personal data91
. Following
amendment of the law, the necessary secondary legislation was adopted, and a circular was
communicated to the administrative authorities giving guidance on the provisions. However,
stakeholders indicate that the law’s implementation is so far compromised by a lack of
awareness by public authorities about the applicable legal obligations and their scope. The
2025 Media Pluralism Monitor notes overall alignment with international standards92
.
There have been several positive developments in the landscape for journalist safety,
although challenges remain on the ground. Since the publication of the 2024 Rule of Law
Report, there have been several cases of attacks, particularly threats and verbal and physical
aggression during demonstrations, including by police forces, reported and condemned by
different journalists’ associations. The 2025 Media Pluralism Monitor considers that the
reported incidents indicate a systemic problem and has adjusted its score of the area
“journalistic profession, its standard and protection” from medium to high risk93
. The Council
of Europe’s Platform to promote the protection of journalism and safety of journalists
registered three alerts in 2024 and one alert in 2025 relating to the physical integrity and
safety of journalists, to the alleged use of spyware against journalists, to impunity in the case
of an assassinated journalist and to the lack of adequate protection against defamation and
insult94
. The Mapping Media Freedom platform registered six new alerts95
since the
publication of the 2024 Rule of Law Report relating to physical assaults, intimidation and
obstruction or restriction of access to information. In July 2024, two suspects for the murder
in April 2021 of the journalist Giorgos Karaivaz were acquitted, and the investigation
remains open96
. The judicial investigation cleared all Greek state agencies and officials in the
case of responsibility for the use of Predator spyware97
. The presidential decree aiming at
safeguarding the privacy of communications against software tracking has not yet been
90
Country visit Greece, journalists’ union and Foreign Press Association; Civil Society Report (2025), pp. 49-
50; Civil Liberties Union for Europe (2025), p. 79.
91
Law 5143/2024, adopted on 9 October 2024 and in force as of 1 January 2025, amends Art. 5 of the Code of
Administrative Procedure, which regulates the right of interested parties to have access to administrative
documents created by public services. Greek Government (2025), written input, p. 107.
92
Country visit Greece, journalists’ unions and Foreign Press Association; Media Pluralism Monitor (2025), p. 13.
93
Media Pluralism Monitor (2025), p. 14.
94
Council of Europe Platform to promote the protection of journalism and safety of journalists (2024-2025).
Greece has replied to all alerts.
95
European Centre for Press and Media Freedom Mapping Media Freedom (2024-2025).
96
Country visit Greece, Ministry of Justice.
97
2024 Rule of Law Report, Greece, pp. 28-29. In July 2024, the General Prosecutor of the Supreme Court
issued a statement on the outcome of the judicial investigation into the alleged use of spyware. Both the
statement and the outcome of the investigations were subject to strong criticism by journalists, legal scholars
and CSOs. Civil Society Report (2025), pp. 15-18.
15
adopted98
. In May 2024, journalists’ unions and the Government signed a generally
welcomed collective labour agreement for journalists employed by the State and public media
which institutionalises working conditions including safeguards on editorial independence,
protection against arbitrary dismissal or employer pressure as well enhanced protection for
women journalists against harassment99
. While journalists’ associations welcomed the
agreement, they still voice concerns regarding the overall framework and work conditions for
privately or independently employed journalists100
. Moreover, the Government has put in
place different implementing measures, such as the adoption of a National Plan for Public
Assemblies, in January 2021, that includes specific guidelines on protecting journalists
covering demonstrations, or the establishment, in January 2023, of the International Training
Centre for the Safety of Journalists providing relevant training to media professionals101
. In
July 2024, a legislative provision was adopted with the intention to prevent direct
broadcasting of trials to an indefinite number of persons without permission of the court,
parties or prosecutors102
, which was perceived by journalists as a restriction to journalistic
coverage of trials by prohibiting full or partial broadcast by any technical means. Journalists’
associations report that the law has created legal uncertainty, as it seems to have been
inconsistently applied by courts and impair their ability to report effectively103
.
Efforts building on measures taken in previous years amount to important steps
concerning legislative and non-legislative safeguards to improve the protection of
journalists, in particular as regards abusive lawsuits104. To address the issues identified as
regards SLAPPs105
, special drafting committees and a national expert group were set up to
work on the transposition of the anti-SLAPP Directive with the objective to expand the
safeguards provided by the Directive also to domestic cases, following the Anti-SLAPP
Recommendation 106
. These developments and the upgrade of operations, introduced in May
2025, of the SLAPPs Observatory of the Panhellenic Federation of Journalists Associations
(POESY) to monitor corresponding incidents are perceived positively by stakeholders107
.The
Task Force on Ensuring the Protection, Safety and Empowerment of Journalists and other
Media Professionals continues its work108
, with some journalists’ associations viewing it as a
productive platform for engagement while others criticise it as being bureaucratic in
nature109
. Positive developments have been previously reported regarding journalists’ safety
such as the abolition of the criminalisation of simple defamation and a new law aiming to
98
Foreseen in Article 13 of Law 5002/2022. Country visit Greece, GS Media and Communication. Until its
adoption, the general prohibition on the use of surveillance software established by Article 12 remains in
force and is punishable by severe prison sentences ranging from 2 to 5 years.
99
Country visit Greece, GS Media and Communication. This agreement follows different measures adopted by
the government to support the private media sector in previous reporting periods such as the EDOEAP
program.
100
Country visit Greece, journalists’ unions.
101
Greek Government (2025a).
102
Article 31 of Law 5119/2024; Greek Government, written input.
103
Country visit Greece, journalists’ unions; Civil Society Report and RSF, written inputs, pp. 48 and 15-16
respectively; Panhellenic Federation of Journalists’ Associations (2025).
104
The 2024 Rule of Law Report recommended to Greece to further advance with the process of adopting
legislative and non-legislative safeguards to improve the protection of journalists, in particular as regards
abusive lawsuits against journalists and their safety, in line with the adopted Memorandum of Understanding
and taking into account European standards on the protection of journalists.
105
Country visit, Greece, journalists’ associations.
106
Country visit Greece, GS Media and Communication.
107
Country visit Greece, journalists’ unions.
108
Country visit Greece, GS Media and Communication. Greek Government (2025), written input, p. 104-105.
109
Country visit Greece, journalists’ unions.
16
combat violence in the context of sport events that includes specific provisions for the
protection of journalists, both adopted in February 2024. 110
. The 2025 Media Pluralism
Monitor concludes nonetheless that a significant alteration in the protection for journalists in
Greece has not yet been felt111
. Considering the above, there has been significant progress on
the implementation of the recommendation made in the 2024 Rule of Law Report.
IV. OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES
The positive trend of avoiding expedited legislative procedures for the adoption of
legislation continues and the statutory timeframe for public consultations is being
observed, while participation and transparency in the law-making process could be
further improved112. Draft bills are systematically submitted to public consultation and the
two weeks statutory period for public consultation is being observed113
. Also, the number of
draft bills submitted to Parliament almost immediately after the end of the public consultation
has drastically dropped114
. The percentage of additional provisions contained in the final text
of legislation without having been submitted to public consultation remained limited in the
reporting period115
. However, most of these additional provisions are submitted to Parliament
as amendments the day before the voting of the draft in Plenary and are often unrelated to the
subject matter of the law116
. Independent authorities, justice stakeholders and business
associations highlight the persistent need for early engagement of interested parties in the
law-making process ahead of public consultations117
. The National Human Rights
Commission referred to its involvement in the transposition of EU legislation on improving
gender balance among directors of listed companies as a positive example of early
engagement118
. The OECD linked the need to ensure timely consultation of stakeholders on
draft legislation with improving the business environment and addressed a corresponding
recommendation to Greece119
. In an effort to strengthen the social dialogue and participatory
democracy in the law-making process, as of December 2024, all draft bills are submitted to
110
2024 Rule of Law Report, Greece, pp 21-23. Law 5090/2024 and Law 5085/2024.
111
Media Pluralism Monitor (2025), p. 25.
112
The 2024 Rule of Law Report recommended to Greece to “step up the efforts to ensure the effective and
timely consultation in practice of stakeholders on draft legislation, including by observing the statutory
timeframe for public consultation”.
113
Greek Government (2025), written input, pp. 114-115. Data available in the portal opengov.gr.
114
During the reporting period only 3 draft bills were submitted to Parliament the same or the following day
after the public consultation ended (compared to 28 during the previous reporting period).
115
16.5% of the articles included in the published law were not submitted for public consultation (15.3%, in
2023). See also, KEFIM (2024), p.3. According to the Government, in 2024, the percentage of articles
opened to public consultation as part of the published draft in relation to the total articles submitted to
Parliament reached 91,4% and the percentage in relation to the total articles published reached 82.5%. Greek
Government (2025), p.115.
116
During the reporting period, 44 (out of 48) amendments were submitted the day before the discussion in the
Plenary. According to the Government, the prevailing parliamentary practice allows the submission of
amendments up until the adoption of the daily agenda. The average number of provisions per amendment
remained rather stable to 4.5 (4 between July 2023 and June 2024). See also 2024 Rule of Law Report,
Greece, pp. 25-26; Civil Society Report (2025), pp. 54-55. OECD (2024), Economic Surveys: Greece 2024,
p.15; European Semester, 2025 Country Report Greece, Annex 6 and GRECO (2024), Fifth Evaluation
Round, Compliance Report on Greece, paras 28-31. According to the Government, in the current legislative
period, which started in July 2023, the number of provisions per amendment is constantly decreasing,
currently reaching a historic low of 3.7 and the number of amendments overall has reached a historic low of
0.8 per draft bill. Greek Government (2025), p.114.
117
Country visit, Ombudsperson, NCHR, Athens Bar Association, Judges associations, Business associations.
118
ENNHRI (2025), Greece, pp. 216-217.
119
OECD (2024), p.13.
17
the Economic and Social Council120
for its opinion in parallel with the public consultation
and so far, the Economic and Social Council has issued 13 opinions. The opinions of the
Economic and Social Council are incorporated into the regulatory impact analysis and
submitted together with the draft law to the Parliament121
. Plans to propose legislation
implementing the right of 500 000 citizens to introduce draft bills (citizens’ legislative
initiative) could further improve public participation in decision-making122
. There has
therefore been overall some further progress on the implementation of the recommendation
made in previous reports.
Less than a third of companies surveyed in Greece express confidence in the
effectiveness of investment protection. 28% of companies are very or fairly confident that
investments are protected by law and courts123
. The main reason among companies for their
lack of confidence is the frequent changes in legislation or concerns about quality of the law-
making process (58%)124
. Fast changing legislation is frequently quoted as a key challenge
for doing business in the country, because it increases uncertainty which makes it more
difficult for potential investors to make informed decisions125
. It is also a challenge for
citizens as well as the judiciary and lawyers126
. For the Government, the current
constitutional structure leaves limited leeway for regulating through implementing acts,
which means that changes in primary legislation are partly inevitable to meet the constantly
evolving needs of modern social and economic realities127
. As regards authorities relevant for
economic operators, 41% of companies perceive the level of independence of the national
competition authority as very or fairly good128
. A number of judicial mechanisms are in place
to ensure the implementation of administrative court judgments, including fines for
responsible officials, the possibility to issue binding orders to perform or refrain from the
administrative act, and to award direct and consequential damages and compensation129
.
120
The Economic and Social Council is a consultative body established in 1994, composed of employers,
employees and other interested parties. Part of its mission is to formulate opinions on draft legislation.
121
Greek Government (2025), additional input.
122
Article 73 para. 6 of the Constitution. General Secretariat for Legal and Parliamentary Affairs (2025),
written input, pp. 5-6.
123
Figure 54, 2025 EU Justice Scoreboard.
124
Figure 55, 2025 EU Justice Scoreboard. 58% of the surveyed investors referred to frequent changes in
legislation (53% in 2024 and 2023). EIB Investment Survey 2024 Country Overview: Greece, p. 17. 90% of
Greek companies are concerned about business regulations.
125
European Semester (2025), Annex 6. For concerns regarding the law-making process see also the previous
paragraph.
126
Prosecutors and Association of Judges of the Council of State (2025), written inputs, pp. 1 and 5; Country
visit, Greece, Athens Bar Association. Civil society also referred to frequent changes in legislation, often
within a short period of time from its entry into force or its previous amendment. For instance, following the
revision of the Codes on criminal law and criminal procedure in February 2024 (see 2024 Rule of Law
Report, Greece, pp. 12-13), subsequent amendments were introduced by six different laws (Laws 5095/2024,
5108/2024, 5134/2024, 5149/2024, 5151/2024 and 5172/2025. Civil Society Report (2025), written input,
pp. 56-57.
127
General Secretariat for Legal and Parliamentary Affairs (2025), written input, pp. 1-2.
128
The Hellenic Competition Commission is an independent authority which promotes and defends competition
in all markets, serving the consumer as well as businesses. It is the primary competition body in Greece,
exclusively responsible for the enforcement of national and EU competition rules. Figure 60, 2025 EU
Justice Scoreboard.
129
Figure 49, 2025 EU Justice Scoreboard; the data presented reflects exclusively the mechanisms in place at
the level of the highest administrative jurisdictions; the same or other mechanisms may be in place at lower
instance administrative courts. 2024 Rule of Law Report, Greece, p. 31.
18
Efforts are under way to ensure that the judiciary is more involved in overseeing the
immunity regime for members of the Government. In April 2025, Parliament decided to
directly refer a former deputy minister to the Judicial Council over allegations of breach of
duty, without a preliminary investigation by a special parliamentary committee130
.
Parliament’s decision was motivated by the need to entrust the full investigation to senior
members of the judiciary and to reserve the same treatment to the former minister as to four
private individuals already indicted for the same facts131
. Although this decision generated
intense discussions among political and legal experts, including as to its compliance with the
Constitution, there is common understanding that the current regime needs to be evaluated in
depth and revised132
. The Government announced its intention for this issue to be covered in
the forthcoming constitutional revision133
. Stakeholders consider such a reform a necessary
step in restoring citizens’ trust in the institutions and the justice system134
.
Previously identified challenges regarding the appointment of members of Independent
Authorities established by the Constitution remain. Article 101Α of the Constitution
requires a qualified majority, including inter-party consensus, for the selection of the heads
and members of these Independent Authorities135
. In October 2024, the Conference of
Presidents of Parliament did not reach the required qualified majority to elect a new
Ombudsperson136
, and there are prolonged delays in selecting new members of the Data
Protection Authority. In November 2024, the Council of State rejected the applications for
annulment submitted by the Bar against the decisions appointing new members of the
National Council for Radio and Television (NCRTV) and the Authority for Communication
Security and Privacy137
for lack of legal standing138
. However, the Council of State will
eventually rule on the legality of the appointments, as several applications for annulment
against fines imposed by the NCRTV are pending139
. Independent authorities consider that
the power to elect their members should be given to a parliamentary body with fixed
composition, while it is important to maintain a qualified majority. They also confirm that
130
The decision to initiate criminal proceedings against former and serving members of the Government is
taken by Parliament. The case is then tried by a Special Court. A special Judicial Council decides on
preliminary issues; one of its members is appointed as investigative magistrate with extensive investigative
powers. All judges participating are chosen by lot from among the judges serving at the highest courts. See
also, 2024 Rule of Law Report, Greece, p. 29.
131
The former minister requested himself that his case be assessed by an independent judiciary rather than a
parliamentary committee. Two other cases were submitted to Parliament regarding alleged involvement of
active and/or former Members of the Government in criminal offences.
132
See among others, Kathimerini (2025); Syntagma Watch (2025); ToVima (2025).
133
General Secretariat for Legal and Parliamentary Affairs (2025), written input, p. 6.
134
Country visit Greece, Court of Audit, Associations of judges, and Athens Bar Association.
135
The five independent authorities established by the Constitution are the Data Protection Authority; the
National Council for Radio and Television (NCRTV); the Hellenic Authority for Communication Security
and Privacy (ADAE); the Supreme Council for Civil Personnel Selection; and the Ombudsperson.
136
The term of office of the current Ombudsperson, which was set to end in June 2022, has been extended until
the election of his/her successor, as provided by article 101A of the Constitution. This was the first attempt
to appoint a new Ombudsperson.
137
The main legal issue raised was whether the 3/5 majority required for the appointments of all members of the
five independent authorities established by the Constitution was respected. See, in detail, 2024 Rule of Law
Report, Greece, pp. 26-27.
138
The Bar considered that the judgment undermined the role of lawyers in the system of checks and balances
and submitted an application to the European Court of Human Rights. CCBE (2025), written input, p. 97.
139
The main ground for annulment concerns the composition of the NCRTV and any decision will be relevant
for all five independent authorities. Country visit, NCRTV.
19
previously reported challenges regarding their budget and human resources remain140
, and
continue referring to the need for uniformity in their legal framework. On the initiative of the
Government, a study on improving the institutional arrangements of all existing independent
authorities is being carried out by the OECD and funded under the European Commission’s
Technical Support Instrument141
.
Progress with the judicial investigation following the Pylos shipwreck is a positive
development to start addressing deficiencies in investigating incidents of alleged
misconduct involving law enforcement officers. In January 2025, the European Court of
Human Rights issued three judgments finding that the authorities had failed to conduct
effective investigations into alleged violations of fundamental rights by law enforcement
officers142
. The ECtHR has raised serious doubts as to the effectiveness of criminal
procedures in specific areas, referring to data submitted by the Government, which indicated
that none of the cases in which criminal investigations were opened went beyond the
preliminary investigation stage143
. The UN Human Rights Committee recommended, in
November 2024, that such allegations are promptly and thoroughly investigated by an
independent authority144
. In May 2025, criminal charges were brought by the Prosecutor of
the Piraeus Naval Court against 17 members of the Hellenic Coast Guard, including senior
officers, in the context of the judicial investigations into the Pylos shipwreck. Stakeholders
considered it a significant development in the path towards justice and accountability145
. In
February 2025, the Ombudsperson concluded its investigation into the Pylos shipwreck,
finding serious failures of the coast guard, and submitted his report to the competent
authorities for the necessary follow-up146
. Despite initial statements by the Government
questioning the basis and the reasoning used by the Ombudsperson147
, which caused reactions
by national and international stakeholders148
, the Government will decide on the appropriate
follow-up pending legal advice from the Legal Council of State149
. Discussions on preventing
misconduct and improving the effectiveness of related investigations were held between the
Department of Execution of Judgments of the ECtHR of the Council of Europe and the
140
2024 Rule of Law Report, Greece, p. 26-27, Country visit Greece, Greek Ombudsman, NCRTV and NCHR.
See also, the interventions of the Heads of DPA and ADAE during the Open discussion ‘How independent
are the Independent Authorities?’, 11 March 2025.
141
Greek government (2025), written input, p. 124. In Greece, there are currently 28 independent administrative
authorities, covering a broad range of areas, including the five independent authorities established by the
Constitution tasked to guarantee the respect of fundamental rights and values.
142
Judgments of the ECtHR, applications 15783/21, A.R.E v. Greece, paras 191-201 and 304; 44758/20,
Panayotopoulos v. Greece, para 118; and 22776/18 Almukhlas et Al-Maliki v. Greece, paras 96-104.
143
A.R.E v. Greece, para 198. Greece requested the referral of the case to the Grand Chamber of the ECtHR.
See also, EU Fundamental Rights Agency (FRA) (2024), Guidance on investigating alleged ill-treatment at
borders, p. 20; CPT (2024), para 159; ENNHRI (2025), pp. 243-244; Ministry of Justice (2024),; Ministry of
Defence (2024).
144
UN Human Rights Committee (2024), Concluding observations on the third periodic report of Greece, p. 16.
145
Press Release by lawyers and organisations representing the survivors of the Pylos shipwreck, 23 May 2025.
146
2024 Rule of Law Report, Greece, pp. 27-28; Greek Ombudsman (2025).
147
Ministry of Maritime Affairs and Insular Policy, press release, 4 February 2025; Spokesperson, interview
Skai radio, 4 February 2025; Deputy Minister for Migration and Asylum, Liberal, 9 February 2025.
148
Council of Europe Commissioner for Human Rights (2025); NCHR (2025); Union of Staff members of the
Office of the Greek Ombudsman, (2025); Civil Society Report (2025), additional written input, p. 2;
ENNHRI (2025), p. 244.
149
The legal opinion of the Legal Council of State was deemed necessary given the high rank positions of the
officers involved and the need to avoid any potential conflicts of interest in the assignment of the
administrative inquiry. Ministry of Justice (2025), written input, p. 35.
20
Government in April 2025150
. Part of the efforts to improve the efficiency of disciplinary
proceedings of the law enforcement officers include the reform of the police disciplinary
law151
.
On 1 January 2025, Greece had 30 leading judgments of the European Court of Human
Rights pending implementation, an increase of 2 compared to the previous year152. At
that time, Greece’s rate of leading judgments from the past 10 years that that had been
implemented was at 66% (compared to 70% in 2024; 34% remained pending), and the
average time that the judgments had been pending implementation was 6 years and 1 months
(compared to 6 years and 7 months in 2024)153
. The oldest leading judgment, pending
implementation for 16 years, concerns the violations of the right to freedom of association
due to the domestic courts’ rulings not to register associations154
. As regards the respect of
payment deadlines, on 31 December 2024 there were 7 cases in total awaiting confirmation
of payments (compared to 7 in 2023)155
. On 16 June 2025, the number of leading judgments
pending implementation had had increased to 31156
. A new ground for the reopening of
proceedings was added in the Code of Civil Procedure, allowing the re-examination of a case
following a judgment of the ECtHR finding a breach of the right to a fair trial or another right
guaranteed by the European Convention of Human Rights157
. The Government is also
preparing draft legislation on state liability for acts of the judiciary to implement the Court’s
judgment in Zoumboulidis v. Greece158
.
There has been limited progress on the recommendation relating to the establishment of
a structured dialogue with civil society organisations, while the evaluation of the
existing registration regulatory framework was initiated159. The civic space in Greece
remains “obstructed” 160
. The registration framework remains complex and fragmented161
.
The UN Human Rights Committee in November 2024 expressed concerns about the stringent
registration requirements imposed on civil society organisations (CSOs), in particular those
working in the areas of migration and asylum, and called upon Greece to review its
legislation162
. The case before the Council of State challenging some aspects of the legality of
the legislation on the registration of the CSOs active in the area of asylum, migration and
150
In the context of the enhanced supervision for the group of cases Sidiropoulos and Papakostas v. Greece.
151
The presidential decree 61/2024 entered into force in November 2024, taking also into account relevant
recommendations made by the Greek Ombudsperson. Ministry of Justice (2025), written input, pp. 39-40.
See also, Pillar II above.
152
For an explanation of the supervision process, see the website of the Council of Europe.
153
All figures calculated by the European Implementation Network (EIN) and based on the number of cases
that are considered pending at the annual cut-off date of 1 January 2025. EIN (2025), written input, p. 4.
154
Judgment of the ECtHR, 35151/05, Bekir-Ousta and Others v. Greece, pending implementation since 2008.
155
Council of Europe (2025), p. 156.
156
Data according to the online database of the Council of Europe (HUDOC).
157
Article 25 of Law 5130/24. Greek Government, written input, pp. 129-130.
158
Judgment of the ECtHR, application 57246/21, Zoumpoulidis v. Greece.
159
The 2024 Rule of Law Report recommended to Greece to “strengthen efforts to evaluate the current legal
framework for the registration system for civil society organisations and assess whether there is a need to
amend it, while moving forward with a structured dialogue with CSOs”.
160
Rating by CIVICUS; ratings are on a five-category scale defined as: open, narrowed, obstructed, repressed
and closed (Civicus (2025), Monitor tracking civic space-Greece).
161
There are eleven Registries managed by different ministries, including the Public Database and the Special
Registry of the Ministry of Interior and the Registries of Greek and Foreign Non-Governmental
Organisations and NGO Members of the Ministry of Migration and Asylum; 2024 Rule of Law Report, pp.
31-32.
162
UN Human Rights Committee (2024), p. 10; OHCHR (2025), written input, p. 7.
21
social inclusion remains pending for several years163
. While the announced digital
interoperability between the different registries is not yet in place, following an agreement
between the Ministry of Interior and the Ministry of Migration and Asylum (MoMA) on the
technical solution, the relevant tender is expected to be launched by the end of June 2025164
.
The MoMA intends to evaluate and revise the legal framework of its special registries by the
end of 2025 with a view to simplifying procedures and reducing administrative burden165
. For
this purpose, and in view of placing its engagement with civil society on a more structured
basis, the MoMA requested, in late May 2025, feedback from all registered CSOs through
two targeted questionnaires166
. Stakeholders noted that despite announcements about
upcoming reforms, for now the rules governing registration remain unchanged167
. In parallel,
the Ministry of Interior is preparing draft legislation establishing an additional platform for
the compulsory registration of all CSOs168
. The purpose of the new platform, on which CSOs
will need to register annually, is to carry out a complete mapping of CSOs activities169
. The
Government considers that a structured dialogue is established between registered CSOs and
the MoMA, however so far only one meeting has taken place in November 2024. In this
context, the MoMA plans to hold biannual meetings per thematic pillar170
. CSOs have
expressed criticism about the format and concerns about statements accusing CSOs of
involvement in smuggling and embezzlements of funds171
. The European Commission
considers that structured dialogues must be regular, long-lasting and result-oriented172
. In
light of the above, there has been limited progress on the implementation of the
recommendations made in previous reports.
163
2024 Rule of Law Report, Country Chapter on the rule of law situation in Greece, p. 28.
164
Greek Government (2025a).
165
2025 National Plan of Government Policy, pp. 198, 340-341; Country visit, MoMA.
166
CSOs were asked to provide their views in relation to the registration and renewal procedures, the operation
of the NGO Members Special Registry and the current legislative framework, The questionnaires also
included questions on how to achieve better cooperation between all parties involved. 39 out of 92 registered
CSOs provided their input. Greek Government (2025a).
167
ENNHRI, Greece, p. 219; Civil Society Report (2025), pp. 64- 66.
168
According to the Government, part of the proposals included in the draft bill respond to an Action Plan for
Civil Society, prepared by the Bodossaki Foundation. The Plan provides an overview of the current state of
civil society in Greece and makes recommendations for self-regulation and proposals for an effective
Regulatory and Financial Framework. Bodossaki Foundation (2025).
169
Greek Government (2025), written input, p. 137; Country visit, Ministry of Interior.
170
The next meeting is scheduled to take place in September 2025 and focus on strengthening cooperation
between the authorities and CSOs. Another meeting is set for March 2026. The choice of the subject matter
of the discussions will depend on the outcome of the previous meeting. Greek Government (2025a).
171
Civil Society Report (2025), additional written input, pp. 3-4, MoMA press release 16 April 2025; Joint
letter by eight CSOs providing services to refugees and applicants for international protection on the Greek
islands, 2 June 2025.
172
European Commission Recommendation (EU) 2023/2836 of 12 December 2023 on promoting the
engagement and effective participation of citizens and civil society organisations in public policy-making
processes.
22
Annex I: List of sources in alphabetical order*
* The list of contributions received in the context of the consultation for the 2025 Rule of Law report
can be found at https://commission.europa.eu/publications/2025-rule-law-report-targeted-
stakeholder-consultation_en.
Association of Administrative Judges (2025), Written contribution from the Association of
Administrative Judges in the context of the country visit to Greece.
Association of Administrative Judges (2025a), Press release, 27 March 2025.
Association of Judges of the Council of State (2025), Written contribution from the Association of
Judges of the Council of State in the context of the country visit to Greece.
Association of Judges of the Council of State (2025a), Press release, 28 March 2025.
Association of Judges of the Court of Audit (2025), Written contribution from the Association of
Judges of the Court of Audit in the context of the country visit to Greece.
Association of Judges and Prosecutors (2024), press release, 18 June 2024.
Association of Judges and Prosecutors (2025), Written contribution from the Association of Judges
and Prosecutors in the context of the country visit to Greece
Association of Judges and Prosecutors (2025a), Press releases, 26 March and 8 April 2025.
Association of Prosecutors (2024), Press release, 18 June 2024.
Association of Prosecutors (2025), Press release, 28 March 2025.
Athens Bar Association (2024), Press releases, 18 June and 17 December 2024.
Athens Bar Association (2025), Press release, 19 March 2025.
Boat Refugee Foundation, Europe Cares e.V., Fenix Humanitarian Legal Aid, Human Rights Legal
Project, I Have Rights, Medial Volunteers International, Refuge Biriyani &Bananas, Samos
Volunteers (2025), Rule of Law Concerns – Greek Island C.C.A.C.s, Joint Letter 2 June 2025.
Bodossaki Foundation (2025), Action Plan for Civil Society.
Centre for Media Pluralism and Media Freedom (2025), Media Pluralism Monitor 2025, Country
report for Greece.
Civicus (2025), Monitor tracking civic space – Greece, https://monitor.civicus.org/country/greece/ .
Civil Liberties Union for Europe (2025), Liberties Rule of Law Report 2025, Greece.
Civil Society Report (2025), Written joint contribution from the Greek Council for Refugees (GCR),
Hellenic League for Human Rights, HIAS Greece, Homo Digitalis, Refugee Support Aegean (RSA),
Reporters United, Solomon and Vouliwatch for the 2025 Rule of Law Report.
Civil Society Report (2025), Additional contribution from the Greek Council for Refugees (GCR),
Hellenic League for Human Rights, HIAS Greece, Homo Digitalis, Refugee Support Aegean (RSA),
Reporters United, Solomon and Vouliwatch for the 2025 Rule of Law Report.
23
Committee for the Investigation of Declaration of Assets (2025), 2024 Annual Report, Audit
Committee Activity Report for the calendar year 2024.
Council of Bars and Law Societies of Europe (CCBE) (2025), Contribution from the Council of Bars
and Law Societies of Europe for the 2025 Rule of Law Report.
Council of Europe anti-torture Committee (CPT) (2024), CPT/Inf (2024)21.
Council of Europe Commissioner for Human Rights (2025), Speech, High-level conference for
Ombudsperson Institutions and National Human Rights Institutions (NHRI), Strasbourg, 27 March
2025.
Council of Europe, Platform to promote the protection of journalism and safety of journalists -
Greece.
Court of Audit (2024), Report of the Revenue and Expenditure of the State for 2023 and the Balance
Sheet (Financial state) and other financial statements of the Central Administration of 31 December
2023.
Council of State (2024), Note to the President, 721/2024.
Council of State (2025), Questions and Answers about the New Building Regulation.
Council of State (2025a), Statement of the President on the decision declaring contrary to the
Constitution provisions of the New Building Regulation, 11 December 2024.
Council of State (2025b), Statement of the President on the decision annulling a ministerial decision
declaring Turkey as a safe third country, 21 March 2025.
Court of Justice of the European Union, judgment of 15 July 2021, Commission v Poland, C 791/19.
European Centre for Press and Media Freedom (2024), Mapping Media Freedom, Greece country
profile.
European Commission (2023), 2023 Rule of Law Report, Country Chapter on the rule of law situation
in Greece.
European Commission (2023), Commission Recommendation (EU) 2023/2836 of 12 December 2023
on promoting the engagement and effective participation of citizens and civil society organisations in
public policy-making processes.
European Commission (2024), EU Justice Scoreboard.
European Commission (2024), 2024 Rule of Law report, Country Chapter on the rule of law situation
in Greece.
European Commission (2025), 2025 Country Report – Greece, Accompanying the document
Recommendation for a Council Recommendation on the economic, social, employment, structural
and budgetary policies of Greece, SWD (2025) 208 final
European Commission (2025), EU Justice Scoreboard.
24
European Commission (2025), Flash Eurobarometer 557 on Businesses’ attitudes towards corruption
in the EU.
European Commission (2025), Special Eurobarometer 561 on Citizens’ attitudes towards corruption
in the EU.
European Court of Human Rights, judgment of 11 October 2007, Bekir-Ousta and Others v. Greece,
35151/05.
European Court of Human Rights, judgment of 4 June 2024, Zoumpoulidis v. Greece, 57246/21.
European Court of Human Rights, judgment of 19 November 2024, Tsiolis v. Greece, 51774/17.
European Court of Human Rights, judgment of 7 January 2025, A.R.E. v. Greece, 15783/21.
European Court of Human Rights, judgment of 21 January 2025, Panayotopoulos v. Greece,
44758/20.
European Court of Human Rights, judgment of 25 March 2025, Almukhlas et Al-Maliki v. Greece,
22776/18.
European Implementation Network (2025), Contribution from the European Implementation Network
for the 2025 Rule of Law Report.
European Investment Bank (2025), EIB Investment Survey 2024: Greece overview.
European Network of National Human Rights Institutions (2025), State of the rule of law in Europe,
Repirts from National Human Rights Institutions, Greece.
European Public Prosecutor’s Office (2025), EPPO Annual Report 2024.
European Public Prosecutor’s Office (2025a), Written contribution from the European Public
Prosecutor’s Office for the 2025 Rule of Law Report.
EU Fundamental Rights Agency (2024), Guidance on investigating alleged ill-treatment at borders.
Financial Crime Prosecutors (2025), Written contribution from the Financial Crime Prosecutors in
the context of the country visit to Greece.
Foreign Press Association (2025), Written contribution from the Foreign Press Association in the
context of the country visit to Greece.
GRECO (2024), Fifth Evaluation Round, Preventing corruption and promoting integrity in central
governments (top executive functions) and law enforcement agencies – Compliance Report on Greece.
Greek Government (2025), Input from Greece for the 2025 Rule of Law Report.
Greek Government (2025a), Additional written contribution for the 2025 Rule of Law Report.
Greek Ombudsman (2025), Press release, 3 February 2025.
Hellenic Single Public Procurement Authority (2025), Written contribution from the Hellenic Single
Public Procurement Authority in the context of the country visit to Greece.
25
Human Rights Watch (2025), Written contribution from the Human Rights Watch for the 2025 Rule of
Law Report.
International Monetary Fund (IMF) (2025), Enhancing Judicial System Efficiency in Greece: Drivers
and Economic Impact.
International Press Institute (2024), Media Capture Monitoring Report, Country chapter on Greece.
International Press Institute (2025), Written contribution from the International Press Institute for the
2025 Rule of Law Report.
Kathimerini (2025), Article of N. K. Alivizatos, Ενστάσεων αντίκρουση,
https://www.kathimerini.gr/politics/563523082/arthro-nikoy-alivizatoy-stin-k-enstaseon-antikroysi/
KEFIM (2024), Policy Brief, Public Consultation.
Ministry of Citizen Protection (2025), Written contribution from the Ministry of Citizen Protection/
Hellenic Police in the context of the country visit to Greece.
Ministry of Interior, General Secretariat for Human Resources in the Public Sector and National
Transparency Authority (2022), Code Of Ethics And Professional Conduct For Public Sector
Employees,
https://aead.gr/images/manuals/EN/code_ithikis_epaggelmatikhs_sumperiforas_ypallhlwn_dhosiou_t
omea_GR_en1.pdf.
Ministry of Defence (2024), Reply to parliamentary question Φ.900α/6153/19533.
Ministry of Interior and National Transparency Authority (2024), Code of Conduct for Seconded
Officials and Special Advisors, https://aead.gr/images/manuals/FINAL_kodikas-deontologias-
metaklhtwn-ypallhlwn_EN.pdf.
Ministry of Interior (2025), Written contribution from the Ministry of Interior in the context of the
country visit to Greece.
Ministry of Justice (2024), Reply to parliamentary question 178/2024.
Ministry of Justice (2025), Written contribution from the Ministry of Justice in the context of the
country visit to Greece.
Ministry of Maritime Affairs and Insular Policy (2025), press release, 4 February 2025.
Ministry of Migration and Asylum (2024), 2025 National Plan of Government Policy.
Ministry of Migration and Asylum (2025), Written contribution from the Ministry of Migration and
Asylum in the context of the country visit to Greece.
National Council for Radio and Television (2025), Written contribution from the National Council for
Radio and Television in the context of the country visit to Greece.
National Commission for Human Rights, Statement, 19 February 2025.
National Transparency Authority (2024), 2023 Annual Report, https://aead.gr/images/essays/2023-
ekthesi-apologismou.pdf.
26
National Transparency Authority (2024a), Code of Conduct for Integrity Advisors,
https://aead.gr/images/manuals/EN/Code_of_Conduct_for_Integrity_Advisors_EN.pdf.
National Transparency Authority (2024b), Transparency Register Annual Report 2023,
https://lobbying.aead.gr/wp-content/uploads/2023-lobbying-etisia-ekthesi.pdf.
National Transparency Authority (2025), Expression of interest invitation, Submission of Application
for Governor of the National Transparency Authority, https://aead.gr/prokirixeis/upobole-
upopsephiotetas-gia-ten-kalupse-tes-theses-tou-dioikete-tes-ead.
National Transparency Authority (2025a), Written contribution from the National Transparency
Authority, in the context of the country visit to Greece.
OECD (2024), Economic Surveys: Greece 2024.
Panhellenic Federation of Journalists’ Associations (2025), POESY article in Typologies (2024):
'Intense concern about the restrictions on journalistic coverage of trials', ΠΟΕΣΥ: ‘Εντονη ανησυχία
για τους περιορισμούς στην δημοσιογραφική κάλυψη δικών.
Plenary of the Bar associations (2025), Decision of 27 March 2025.
Refugee Support Aegean( 2025), Joint Press Release by lawyers and organisations representing the
survivors of the Pylos shipwreck, 23 May 2025.
Reporters Without Borders and Free Press Unlimited (2025), Written contribution from Reporters
Without Borders and Free Press Unlimited for the 2025 Rule of Law Report.
Secretariat General for Communication and Media (2025), Written contribution from the Secretariat
General for Communication and Media in the context of the country visit to Greece.
Secretariat General of Legal and Parliamentary Affairs (2025), Written contribution from the
Secretariat General of Legal and Parliamentary Affairs in the context of the country visit to Greece.
Supreme Court (2025), Written contribution from the Vice Prosecutor of the Supreme Court in the
context of the country visit to Greece.
Supreme Court (2025a), press release 26 March 2025.
Supreme Court (2025b), press release, 4 June 2025.
Syntagma Watch (2025), Article of K.B.Botopoulos, Άρθρο 86 και «δίωξη Τριαντόπουλου»,
https://www.syntagmawatch.gr/trending-issues/arthro-86-kai-diwxi-triantopoulou/
To Vima (2025), Interview, Βενιζέλος στο ΒΗΜΑ: Ο χειρισμός της Προανακριτικής καταστρατηγεί το
Σύνταγμα https://www.tovima.gr/print/politics/venizelos-sto-vima-o-xeirismos-tis-proanakritikis-
katastratigei-to-syntagma/.
Transparency International (2025), Corruption Perceptions Index 2024.
Transparency International (2025), Written contribution from Transparency Interational for the 2025
Rule of Law Report.
Vouliwatch (2024), Concerns about the implementation of the law on “lobbying” and the functioning
of the Transparency Register
27
UN Human Rights Committee (2024), Concluding observations on the third periodic report of
Greece.
UN Human Rights Regional Office for Europe (OHCHR) (2025), Written contribution from OHCHR
for the 2025 Rule of Law Report.
Union of Staff members of the Office of the Greek Ombudsman (2025), Press release, 5 February
2025.
28
Annex II: Country visit to Greece
The Commission services held virtual meetings in March 2025 with:
• Association of Administrative Judges
• Association of Judges and Prosecutors
• Association of Judges of the Council of State
• Association of Judges of the Court of Audit
• Association of Notaries
• Committee of Parliament for the Investigation of Declarations of Assets (CIDA)
• Council of State
• Court of Audit
• Federation of Industries of Greece (SVE)
• Foreign Press Association Greece
• Greek Bar Associations
• Greek Council for Refugees
• Greek Ombudsperson
• Hellenic Broadcasting Corporation (ERT)
• Hellenic Confederation of Commerce & Entrepreneurship (ESEE)
• Hellenic Federation of Enterprises (SEV)
• Hellenic Single Public Procurement Authority (HSPPA)
• HIAS Greece
• Homo Digitalis
• Internal Affairs Unit of Law Enforcement Bodies, Ministry of Citizen Protection
• Journalists' Union of Athens Daily Newspaper (ESIEA)
• Ministry of Interior
• Ministry of Justice
• Ministry of Migration and Asylum
• National Association of National Private Broadcasters
• National Audiovisual Regulator
• National Commission for Human Rights (NCHR)
• National Transparency Authority
• Office of the Prosecutors to the Supreme Court and Office of the Prosecutor for
Financial Crimes
• Panhellenic Federation of Journalists' Unions (POESY)
• Refugee Support Aegean
• Reporters United
• Secretariat General for Communication and Media
• Secretariat General of Legal and Parliamentary Affairs
• Solomon
• Supreme Court
• Transparency International Greece
• Vouliwatch
29
* The Commission also met the following organisations in a number of horizontal meetings:
• Amnesty International
• Araminta
• Civil Liberties Union for Europe
• Civil Society Europe
• European Civic Forum
• European Partnership for Democracy
• European Youth Forum
• International Commission of Jurists
• International Federation for Human Rights (FIDH)
• JEF Europe
• Philea – Philanthropy Europe Association
• Transparency International