The new Local Government Code presented for public consultation by Interior Minister Theodoros Livanios includes major changes to the institutional framework governing the election, administration, and operation of municipalities and regions. The most significant reforms radically change the way the next local elections in 2028 will be held, providing for the election of mayors and regional governors in a single Sunday vote, abolishing the second round and introducing an “alternative” or supplementary vote.

How the one-round system and supplementary vote will work

Under the proposed changes, local elections in Greece’s 332 municipalities and 13 regions will be held every five years, in a single round, on the last Sunday of November. Voters will mark the party list, mayoral or regional candidate they prefer, along with council candidates, exactly as they do today.

However, at the bottom of the ballot paper, the remaining party lists will also appear in order of official registration, allowing voters — if they wish — to cast an alternative or supplementary vote.

After the polls close, the counting process will initially proceed in the same way as in the 2023 elections.

If the leading party list surpasses 42%, the mayor or regional governor is elected immediately, securing at least three-fifths of the seats. In that case, the alternative votes are not taken into account.

If no list reaches the 42% threshold, a second counting phase is automatically triggered.

In this second phase, the top two party lists — the ones that under the old system would have advanced to a second Sunday runoff — remain in contention. The votes they already received are then supplemented with the alternative votes cast by voters whose first-choice lists failed to qualify for the second phase. The winner will be the list that receives the most votes overall after both phases.

The reform also introduces the possibility of electronic voting.

Example of how it works

For example, suppose List “A” receives 40%, List “B” receives 36%, and the remaining lists collectively receive 24%.

Now assume that from this 24%, 5% gave their alternative vote to List “A,” 10% to List “B,” while the remaining 9% chose no alternative preference. The final total would raise List “A” to 45%, while List “B” would reach 46%, making “B” the winner.

According to the Interior Minister, the new electoral system aims to strengthen democratic legitimacy while also addressing administrative and financial burdens, as well as the high abstention rates associated with holding two separate rounds.

Data collected by the ministry shows that nearly half of those who vote in the first round do not return for the second round. In the Municipality of Athens, turnout in the second round of the 2023 elections was just 26.7%; in Thessaloniki, 32.5%; and in Patras, 44.5%.

The ministry also notes that participation by voters living far from their registered municipality becomes extremely difficult when they must travel hundreds of kilometers within a single week. In addition, the two-round system places a heavy administrative burden on local authorities and court staff.

Additional provisions in the new code

According to the Ministry of Interior, the new code also provides for:

• Consolidating all major provisions into a single code, eliminating the need to navigate scattered legislation.
• Abolishing or integrating older fragmented regulations.
• Ensuring unified interpretation and implementation.
• Introducing new rules focused on efficiency, transparency, and citizen participation.
• Strengthening municipalities and regions through digital tools, administrative reorganization, and improved financial management.

The ministry argues that having a unified code:

• Dramatically reduces bureaucracy.
• Makes work easier for elected officials and staff.
• Helps citizens better understand the system.
• Simplifies procedures and reduces delays.
• Expands participation opportunities, especially for young people and citizens living far away.
• Clarifies responsibilities and reduces overlaps.
• Improves financial management and use of public resources.
• Enhances transparency and accountability.
• Reduces arbitrariness through more objective and auditable procedures.
• Improves the quality of public services and everyday life.

The 10 most important changes in local government

Among the key reforms are:

1. A unified legal framework for municipalities and regions.
2. Greater citizen participation through local referendums and online voting.
3. Stronger transparency and accountability mechanisms.
4. Reorganization of local governance structures and clearer division of responsibilities.
5. More effective and transparent financial services.
6. A more objective legality-control system for local government decisions.
7. Clearer rules regarding compensation and status of elected officials.
8. Better allocation of responsibilities across levels of government.
9. Abolition of the second election round and introduction of electronic voting.
10. Broad digital transformation of local government services and citizen interaction.

Structure of the Local Government Code

The code consists of six sections (“Books”):

• Book 1 defines local government structures, electoral rules, and campaign finance oversight.
• Book 2 regulates governing bodies, advisory councils, and legal entities.
• Book 3 outlines the responsibilities of municipalities and regions.
• Book 4 covers economic administration, public contracts, assets, and revenues.
• Book 5 regulates legality checks and disciplinary accountability.
• Book 6 contains general operational rules and ratifies the additional protocol of the European Charter of Local Self-Government.