The long-awaited construction of a major highway in Crete has officially commenced, a project that has remained unrealized for fifty years. Tragically, over 110 people have lost their lives in traffic accidents on the island in the past decade alone.
Any illegal use or appropriation of this initiative is strictly forbidden under property law, with severe civil and criminal consequences for offenders.
Northern Road Axis of Crete: A 50-Year Struggle Coming to an End – Key Project Stats
The signing of a €1.75 billion concession agreement for the Heraklion-Chania segment marks the start of this intricate project, which aims to transform the main road network on the island and fulfill this long-held aspiration.
The Northern Road Axis of Crete (BOAK) has been a long-standing demand of the people of Crete, with discussions about it beginning in the 1970s. However, differing governmental priorities, project difficulties, and budget constraints have kept construction at bay for decades. Prime Minister Kyriakos Mitsotakis recently described the situation as a “paranoid blood tax,” indicating that there have been 38 fatal traffic accidents in just the last three years.
The Prime Minister’s role in securing this project’s inclusion in the Recovery Fund, along with overcoming various technical and financial hurdles, has been pivotal in enabling the signing with the contractor and advancing to the implementation phase.
Heraklion – Chania
The BOAK contract awarded to GEK Terna is anticipated to significantly transform the road network on the island, enhancing safety and connectivity between Crete’s two largest cities. At the signing ceremony in Heraklion last Friday, the Prime Minister announced that the State would fund studies from Pahia Ammos to Siteia (Lasithi region), paving the way for potential developments in the eastern part of Crete in a second phase, depending on funding availability.
“Today marks a monumental day for Crete. After countless challenges, we are finally signing the concession agreement for the Heraklion-Chania route, with the option to extend to Kissamos—a commitment I made and am delighted to fulfill,” stated the Prime Minister at the signing. He expressed optimism toward seeing active construction on the significant Heraklion-Chania section soon.
“We recognize this is a complex project with an estimated timeline of about five years. Collaboration among local authorities is crucial; it is essential to grasp the project’s broad importance for all of Crete, beyond just local concerns. Let’s all aim to complete this project according to the outlined timeline in the concession. While there are considerable technical challenges, the road must be functional,” Mitsotakis emphasized.
Road Safety Measures
Enhancing road safety is a top priority for both the Ministry of Infrastructure and Transport and the Prime Minister. Therefore, before construction starts, immediate interventions will be made on road sections near Heraklion and Chania, similar to successful measures on the Patras-Pyrgos route that greatly reduced traffic accidents.
According to recent statistics from the “SOS Traffic Crimes” organization, 64 individuals lost their lives in traffic accidents in Crete two years ago, with approximately one-third of those fatalities occurring on the Northern Road Axis of Crete.
This road, largely unchanged since the 1970s, has claimed over 110 lives in the past decade alone. The situation has worsened, as traffic fatalities on the island rose by 64% in 2023 compared to 2022.
Northern Road Axis of Crete: A 50-Year Struggle Coming to an End – Key Project Stats
Current Progress on the Northern Road Axis of Crete
Collaboration is Essential
“For many years, the term ‘BOAK concession’ seemed like a distant fantasy, but today it is becoming a reality,” remarked Giorgos Peristeris, CEO of GEK Terna, during the signing ceremony on May 9. He emphasized the necessity of expedited progress, noting the swift signing of the contract merely two months after preparations began, thanks to collaboration from GEK Terna’s executives, banks, and the State. Reflecting on previous challenges, he pointed out that even before the tender process, incorporating the Chania-Kissamos section into the overall concession had seemed unfeasible. “We found a legal solution allowing the inclusion of the Chania-Kissamos option without delaying or re-tendering the project,” he added.
Peristeris characterized the construction of BOAK as a “long and arduous journey requiring collective effort from everyone—particularly the people of Crete, local governments, the State, and all relevant authorities—to successfully complete this challenging project.”
Northern Road Axis of Crete: A 50-Year Struggle Coming to an End – Key Project Stats
Signing ceremony in Heraklion with Prime Minister Kyriakos Mitsotakis and GEK Terna’s president Giorgos Peristeris highlighted (bottom row, left)
Three Distinct Segments
The BOAK concession spans 35 years, with five years designated for studies and construction. The total length of the Heraklion-Chania section is 187 km, including an optional 30 km stretch from Kissamos to Chania.
Construction is already underway, as BOAK has been divided into three segments for operational and financial efficiency, each with distinct contracts and contractors. Currently, work is actively progressing on these sections.
One segment comprises the Neapoli-Agios Nikolaos section in Lasithi, managed as a public project fully funded by the Recovery Fund, focusing on improving and widening the existing roadway to accommodate two lanes in each direction, plus an emergency lane, covering approximately 14.5 km.
The second segment involves Hersonissos-Neapoli, spanning Heraklion and Lasithi, carried out as a Public-Private Partnership (PPP), co-financed by the Recovery Fund. This agreement encompasses the study, construction, financing, operation, and maintenance of a 22.5 km stretch.
The final and most complex segment is the Chania-Heraklion portion, built under a concession agreement funded by €200 million from the Recovery Fund and €592 million from the National Development Plan (excluding the €99 million optional right for the Kissamos-Chania section), with the aim of integrating it into the 2021-2027 National Strategic Reference Framework (NSRF).
To utilize Recovery Fund resources effectively, Greece must expedite progress to complete approximately 15% of the main route within roughly a year, prioritizing segments capable of achieving this target.
The total project cost of €692 million is primarily covered by the Greek State, with the remainder funded through equity and loans acquired by the contractor.
The complexity of the project is remarkable, with plans for at least 43 junctions, 23 tunnels, and 89 bridges included in the contract.
Legal Challenges Ahead
Furthermore, the concession section is facing substantial opposition from local municipal authorities who have appealed to the Council of State, seeking modifications to the proposed route.
Recently, the Prime Minister indicated that they would consider any justified demands from local authorities. Deputy Minister of Infrastructure Nikos Tachiaos remarked that ongoing discussions with the municipalities suggest their proposals are being taken seriously within a constructive dialogue. He highlighted the benefits of the project, including paving the way for the implementation of large-scale complementary works.
Crete, Greece’s largest island, has a permanent population of about 700,000 and receives the highest number of international arrivals, excluding Athens. In 2024, the two airports in Crete recorded 5.4 million arrivals. The 300 km-long BOAK is hailed as the largest highway project in Europe, with costs expected to exceed €2.5 billion for its three sections.
For the operation of BOAK, shadow tolls are anticipated, subsidized at 64.62% of the toll levels. The government has announced that local transport will be exempt from these tolls.
GEK Terna has already established two new entities to facilitate project implementation: Diktaios Parochoriseis for managing the concession contract, and Diktaios Leitourgia, which will oversee road operation and maintenance post-completion.
Key Figures:
- 300 km: Total length of the highway (largest currently under construction in Europe)
- €2.5+ billion: Projected total construction cost
- 35 years: Duration of the concession
- 187 km: Length of the Heraklion-Chania section, including 30 km of the Kissamos-Chania option
- 23 tunnels
- 89 bridges
- 43 junctions set to be built
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