Traditional Cultivation and Land-Use Change Under the Balaton Law: Impacts on Vineyards and Garden Landscapes

The Balaton region is Hungary’s most important recreational area, known for Central Europe’s largest freshwater lake and its traditional vineyard and horticultural landscapes. Since 1990, vineyard and orchard abandonment and intensified shoreline urbanization have increasingly threatened both landscape character and ecological balance. This study analyses land-use changes in the Balaton hinterland and evaluates the effectiveness of regional land-use regulation between 1990 and 2018, with a focus on the 2000 Balaton Law (BKÜRT), which sought to preserve traditional land uses by permitting construction only where at least 80% of vineyard parcels remained cultivated. Spatial–temporal analysis was based on CORINE Land Cover (CLC) data from 1990 to 2018, supplemented by change layers from the Copernicus Land Monitoring Service. The CORINE Land Cover classification is a three-level hierarchical system (5 Level-1 groups, 15 Level-2 classes, and 44 Level-3 classes) developed by the EEA to provide standardized, satellite-based land cover information across Europe. Land cover was aggregated into major categories (using Level-1 and Level-2 classes) relevant to the Hungarian landscape. To address CLC limitations related to representing vineyards as relatively homogeneous units despite substantial differences in the density and scale of built structures, detailed case studies were conducted in three C1 vineyard zones—Alsóörs, Paloznak, and Szentantalfa—using historical aerial photographs, Google Earth imagery, and the Hungarian Ecosystem Map (NÖSZTÉP). Despite the restrictive regulatory framework, the CLC database showed that the share of vineyards in the vineyard regulation zone (C-1, C-2) decreased between 1990 and 2018 from 45.4% to 35.8% (the share of gardens and fruit plantations had changed from 9.7% to 15.5%). In the whole Balaton region, there was an approximately 18% decline in vineyard areas. Considering the M-2 horticultural zone, the garden coverage increased from 18.9% in 1990 (17.7% in 2000) to 30.5% (share of vineyards changed from 54.3% (54.6% in 2000) to 38.8%). At the regional level, gardens and fruit plantations had a smaller decrease (3.2%). Although overall trends were more favorable than at the national level, regulatory measures proved insufficient to prevent the conversion of vineyards and orchards in sensitive areas, particularly on slopes overlooking the lake, in proximity to tourist hubs, and in areas exposed to strong development pressure. By 2018, the C1 zone had expanded spatially but became less targeted, as the proportion of vineyards within it decreased. Boundary refinements failed to substantially improve regulatory precision or effectiveness. The case studies reveal a gradient of regulatory strictness reflecting differing landscape protection priorities and stages of vineyard transformation, with Alsóörs responding to long-standing, partly irreversible changes while attempting to slow further landscape alteration. To counter ongoing negative trends, more targeted and enforceable regulations are required, including a clearer separation of cultivated and recreational land uses, a maximum building size of 80 m2 for recreational properties, and a reassessment of vineyard zone boundaries to better reflect active cultivation and protect sensitive landscapes.