Greece’s Health Ministry has opened public consultation on a draft law that would tighten controls on cannabis, nicotine and tobacco products, while also advancing broader healthcare reforms, including a new fund for innovative medicines.
While the legislation spans several areas of health policy, its most immediate effect would fall on cannabis, nicotine, tobacco and e-cigarette products.
Greece tightens cannabis controls in two directions
The draft law delivers one of its biggest shifts in the cannabis sector. It raises the permitted tetrahydrocannabinol (THC) threshold from 0.2% to 0.3%, but it also imposes a full ban on the retail sale, supply, purchase and use of dried cannabis flower, even when THC content stays within the legal limit.
That measure is likely to disrupt the market for so-called low-risk cannabis products, where dried flower has circulated widely in recent years under permissive readings of existing rules.
At the same time, the bill allows other cannabis-based categories to remain on the market. Products such as foods, cosmetics and supplements containing cannabis can still circulate, as long as they meet the conditions set by the legislation.
In medicinal cannabis, the Greek government takes a more flexible approach. The proposal simplifies licensing for production aimed at export and lowers the relevant fees, signaling support for pharmaceutical cannabis activity with an international commercial focus.
Cannabis controls bring strict rules for licensed shops
For the first time, the bill creates a dedicated legal framework for businesses selling cannabis-related products. These businesses may operate only in specially licensed stores, and those stores must stand at least 500 meters from schools.
Retailers may sell only products containing up to 0.3% THC or CBD products. Greece’s regional administrations will handle licensing, and applicants must submit specific documentation, including a criminal record certificate, tax clearance and social insurance clearance.
The legislation also creates a mandatory Digital Registry for cannabis-product businesses. Any company outside that registry will be barred from operating in the sector.
Greece steps up enforcement and penalties
The National Organization for Medicines (EOF), police authorities and joint inspection teams will carry out oversight. Their controls will also include chemical analysis of products.
The sanctions are severe. Violations can bring fines of up to €100,000 ($117,952), withdrawal of operating licenses and prison sentences of up to five years for illegal trafficking.
New nicotine limits and tighter sales rules
The bill also sets a stricter framework for nicotine products and heated smoke-free products. It bans free distribution of these products and requires retailers to display signs stating that sales to minors are prohibited.
Lawmakers also tighten technical standards. The legislation sets a maximum nicotine content of 16 mg per pouch and requires secure packaging.
Violations can trigger fines of up to €30,000 ($35,385), while repeat offenses may also lead to business closures.
Tobacco and e-cigarettes face closer scrutiny
For tobacco products and electronic cigarettes, the draft law expands state oversight through the EU-CEG European platform. Authorities would gain stronger powers to evaluate products before and after they enter the market.
The compliance process includes checks within six months of notification, the power to request additional documentation from manufacturers and the authority to block circulation in cases of non-compliance.
Fines in this area range from €200 ($235) to €30,000 ($35,385) per product, and repeat violations would trigger doubled penalties. Authorities could also withdraw or ban products already on the market.
Harsher penalties for sales to minors and repeat offenders
The broader anti-smoking and retail enforcement regime also becomes more punitive. Fines for individual smokers range from €50 ($58) to €500 ($589), while businesses can face penalties of up to €10,000 ($11,794).
For repeat offenders, the bill provides for temporary suspension of operating licenses, permanent revocation of licenses and closure of premises for up to 180 days.
The sale of tobacco products and alcohol to minors, including through vending machines, would draw stricter penalties. Authorities would also impose sanctions in cases involving the entry of minors into bars and entertainment venues. The bill keeps tobacco advertising restrictions in place and reinforces them further.
One notable addition targets attempts to sidestep sanctions through corporate restructuring. Businesses would not escape penalties by changing legal form if related persons continue the same activity.
From cannabis controls to innovation funding in Greece’s health reform
Beyond the tighter controls on cannabis, nicotine and tobacco, the draft law also creates a new Innovation Fund within EOPYY, Greece’s national health services purchaser, as a distinct category of pharmaceutical spending.
The fund aims to expand access to high-cost innovative treatments, including advanced therapy medicinal products (ATMPs) and priority medicines (PRIME). It will be financed through the state budget and tracked separately, with no option to shift its resources to other areas of health expenditure.
To qualify, a therapy must have European Medicines Agency approval, be registered in Horizon Scanning, be backed by a documented request from a scientific body and include a commitment from the marketing authorization holder to complete treatment and collect data on effectiveness, safety and cost.
The bill also creates an Innovation Fund Committee at the Health Ministry to review applications, negotiate with pharmaceutical companies and issue recommendations on whether therapies should enter the scheme. Experts will support the committee, which will serve a three-year term.
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