Too Much, Too Soon? The Changes in Greece's Land Administration Organizations during the Economic Crisis Period 2009 to 2018

Land administration is the managing of spatial and legal data pertaining to land. Land administration organizations provide services for land ownership and are essential to a well-functioning land administration system to secure land and property rights for all and support real estate markets. This article reviews the case of the Hellenic Land Administration Reform and the associated changes in the land administration organizations during the economic crisis period (2009-2018). We qualitatively analyze these changes and their actual effects through a set of legislative initiatives according to the orders of change of the enactive theory of reforms and the concept of isomorphism. The study is informed by interviews with key informants involved in the land administration policy domain, and by secondary data, such as legislative documents and reports. Findings show that the legislative initiatives aimed to bring efficiency, transparency, and rationalization to the land administration policy domain by centralizing the collection of land transaction fees and nationalizing the land administration organizations., The enacted legislative initiatives encompassed organizational (second-order) changes within a short period, instead of incremental technical or managerial measures (first-order) to improve ineffective practices and services for citizens. They ended with a drastic organizational transformation, resulting in "premature load bearing" in the involved organizations, which complexified the implementation of an ambitious land administration reform and impacted the smooth operation of the real estate market. The article increases the current insight on the merger of land administration organizations and its implications. It contributes to the land administration scholarly literature on the establishment of new organizations to create a modern cadastral system from a public policy perspective through the orders of change of the enactive theory of reforms.