Inicio » Decree-Law 2/2025. Urgent measures to combat property speculation and guarantee access to housing in Catalonia

Decree-Law 2/2025. Urgent measures to combat property speculation and guarantee access to housing in Catalonia

March 10, 2025

Julia Fargas Esteve

Julia Fargas is COO of Blegal Barcelona, where she has spent almost 9 years leading the firm's operations and digital transformation. An ESADE MBA, she has a long track record in business management, process optimization and business strategy.

Julia Fargas Esteve

Julia Fargas is COO of Blegal Barcelona, where she has spent almost 9 years leading the firm's operations and digital transformation. An ESADE MBA, she has a long track record in business management, process optimization and business strategy.

El 25 de febrero de 2025, la Generalitat de Cataluña aprobó el Decreto-ley 2/2025, con el objetivo de hacer frente a la crisis habitacional mediante una regulación más estricta del mercado inmobiliario. La normativa introduce medidas clave, como la modificación del derecho de tanteo y retracto para grandes tenedores, la creación de un registro de viviendas vacías con sanciones por inacción y la agilización de la construcción de vivienda de protección oficial. Asimismo, establece un régimen sancionador más severo para frenar la especulación y refuerza la protección del suelo público y la regeneración urbana. Con estas medidas, el Decreto-ley busca garantizar el acceso a la vivienda, aumentar la oferta de alquiler asequible y fomentar un desarrollo urbano sostenible.

On 25 February 2025, the Government of the Generalitat of Catalonia approved Decree-law 2/2025, aiming to implement urgent measures on housing and urban planning. This legislation responds to the growing housing crisis and seeks to regulate the real estate market more effectively, promoting access to housing, urban regeneration and control of property speculation.

Main Measures of the Decree-law

Modification of the Right of First Refusal and Repurchase for Major Holders

One of the decree-law’s main innovations is the amendment of the right of first refusal and repurchase, granting the Generalitat the preferential acquisition right in housing transfer operations. This reform primarily targets major holding entities—those owning a significant number of properties. Henceforth, when these entities sell or transfer properties, the Generalitat may exercise its right of first refusal more efficiently, ensuring that such homes are used for public purposes such as social renting or sale at affordable prices. The aim is to curb property speculation and guarantee that housing serves the public interest.

Register of Vacant Properties and Penalties for Inaction

The decree-law establishes a register of major holders to identify entities that own vacant properties. This register enables the Generalitat to take steps to bring these empty homes into the rental market, either by requiring their offering or imposing penalties. Vacant properties not released to the market will incur severe fines, aiming to reduce speculation and increase the availability of dwellings.

Expediting the Construction of Social Housing

To boost the supply of affordable housing for lower-income individuals, the decree-law streamlines administrative procedures for constructing social housing. This measure addresses the urgent need to expand the public housing stock in Catalonia and ensure that those with limited means can secure decent accommodation.

Enhanced Sanctions Regime for Infractions

The decree-law also introduces more stringent sanctions for housing-related infractions. Fines of up to €900,000 are imposed on those who breach rules concerning the occupation of vacant dwellings or engage in speculative real estate practices. This seeks to encourage compliance and ensure a fair housing market.

Promotion of Urban Regeneration and Protection of Public Land

The decree-law includes measures for urban regeneration, encouraging the rehabilitation of degraded neighbourhoods and improving residents’ quality of life. It also establishes a regime for protecting public land, enabling the Generalitat to make more efficient decisions regarding developable land management and new project development, thereby fostering more balanced and sustainable urban growth.

Revision of Urban Planning Schemes

Planning regulations are amended to facilitate the rehabilitation of land and its adaptation to current housing needs. Additionally, the law seeks to protect green spaces and promote sustainability in new urban developments, in line with responsible, environmentally respectful urbanism principles.

Objectives of the Decree-law

The principal objectives of Decree-law 2/2025 are:

Guarantee the right to housing: Ensure that everyone, especially those with fewer resources, can access decent, affordable housing.
Control property speculation: Limit speculative practices that drive up property prices, hindering access to housing.
Promote urban regeneration: Encourage the rehabilitation and improvement of degraded neighbourhoods, fostering fairer and more accessible urban development.
Increase the supply of public housing: Expand the number of social housing units, especially in high-demand areas, to ensure access for the most vulnerable groups.

Decree-law 2/2025 establishes an ambitious regulatory framework to tackle the challenges of Catalonia’s real estate market, emphasising the regulation of major holders and the promotion of affordable housing. These measures aim to curb speculation, improve the public housing supply and uphold the right to housing for all citizens. In this context, as real estate asset managers with extensive experience, we are committed to supporting our clients in complying with these regulations, optimising asset management and facilitating adaptation to new market requirements.