Illegal villa may become sheep farm in Malta

The controversial saga surrounding Marco Gaffarena’s illegally constructed villa in Żebbuġ has taken yet another surprising turn. Despite nearly two decades of enforcement actions, court battles, and rejected applications, Gaffarena is now seeking to legalise the sprawling development under the guise of an agricultural enterprise. His new strategy involves claiming the site will be used as a sheep farm—an application already raising alarm bells among authorities.

A 17-year saga of illegal development

The controversy dates back to 2004, when Gaffarena began developing a significant plot of arable land in the rural area of Żebbuġ. What started as a stable project quickly expanded into a luxury residence that includes a nearly 400-square-metre villa, landscaped gardens, a swimming pool, and a private zoo hosting exotic animals such as llamas and zebras.

Despite an enforcement order issued in 2007 to halt development and impose daily fines, Gaffarena continued to expand the site. The fines, capped at €50,000, have reportedly never been paid.

Over the years, various attempts to regularise the property have failed. In 2020, the Planning Authority (PA) officially rejected Gaffarena’s bid to sanction the development. This decision was later upheld by the Environment and Planning Review Tribunal in 2022, reinforcing the illegal status of the property.

New attempt under an agricultural pretext

In a renewed effort to obtain legal status for the property, Gaffarena’s wife, Josielle Gaffarena, has submitted a new planning application (PA00605/25), requesting that the villa be converted into a fully functional sheep farm producing traditional Maltese cheeselets (ġbejniet).

This application comes despite the fact that Josielle Gaffarena is not registered as a farmer and lacks any documented experience in livestock rearing. The Agricultural Advisory Committee (AAC) has already raised serious objections, asserting that the couple's application does not meet the basic requirements for an agricultural development.

The Environment and Resources Authority (ERA) has also expressed its opposition, citing environmental concerns and lack of authenticity in the proposal.

The application is expected to be opened for public consultation in the coming week.

Authorities push back against Gaffarena’s plan

Both the AAC and the ERA’s objections reinforce a recurring theme in the Gaffarena saga—persistent attempts to circumvent planning laws using loopholes or unconventional strategies.

The AAC’s statement pointedly remarked that the application lacks substance and credibility, noting that no agricultural activity had ever been recorded on the land. They further criticised the opportunistic nature of the sheep farm claim, viewing it as a transparent manoeuvre to disguise what remains a residential and recreational compound.

The ERA added that the site in question, located in an area designated for agricultural use, has been irreversibly altered. Concrete surfaces, non-native structures, and the zoo-like facilities stand in stark contrast to what would be expected on a legitimate sheep farm.

A history of legal battles

Marco Gaffarena’s entanglements with planning regulations and the courts are well-documented. After his application to regularise the villa was rejected in 2020, and the appeal failed in 2022, Gaffarena attempted to pursue a legal challenge on different grounds.

Rather than appealing through the designated Environment and Planning Review Tribunal, he filed a separate case in the civil courts, arguing that the penalties imposed on him violated his fundamental human rights. The court ultimately dismissed his claim, reaffirming that the penalties were proportionate and legally justified.

Legal experts observed that the civil court was not the proper venue for such a complaint and noted that Gaffarena’s legal tactics appear designed to stall enforcement and exploit procedural gaps.

No signs of compliance

Despite the rejection of his applications and continued enforcement actions, Gaffarena has not only refused to comply but has also escalated the development on site. According to local sources, construction has continued sporadically over the years, and the site’s footprint has grown significantly beyond its original boundaries.

The enforcement order, while imposing daily fines, appears to have little deterrent effect given the capped maximum of €50,000. Critics argue that the relatively low financial penalty—combined with a slow-moving bureaucratic process—has enabled Gaffarena to defy the rules with impunity.

Planning Authority under pressure

The case has once again placed the Planning Authority under public scrutiny. Activists, journalists, and policy observers have questioned why illegal developments continue unchecked for such extended periods, especially in environmentally sensitive zones.

The PA has often cited limited enforcement resources and legal limitations on fine collection. However, the Gaffarena case is frequently referenced as a prime example of the authority’s perceived ineffectiveness in dealing with well-connected individuals or those who exploit legal loopholes.

Public response and growing outrage

Public sentiment surrounding the Gaffarena saga has grown increasingly critical. On social media and in civil society circles, the proposed sheep farm has been widely ridiculed as a blatant façade. Environmental groups have already vowed to object during the public consultation phase.

The site’s transformation into a pseudo-zoological garden—complete with non-native animals—has further infuriated environmentalists, who argue that it represents a mockery of planning and conservation laws.

The broader implications

This case is emblematic of a broader issue in Malta—namely, the challenges of enforcing planning laws against individuals who appear determined to operate outside the law. Experts warn that if such behaviour goes unchecked, it undermines the rule of law and encourages further abuses.

The misuse of agricultural classifications to legalise residential developments is not new. However, the blatant nature of the Gaffarena case has made it a national talking point, with many urging lawmakers to revisit existing legislation to prevent similar abuses in the future.

What comes next?

As the application moves to public consultation, authorities will need to evaluate not only the validity of the sheep farm claim but also the overall credibility of the applicants. The Planning Authority has yet to issue a public statement, but pressure is mounting for it to definitively reject the permit.

Should the application be approved, it would likely set a dangerous precedent for others seeking to bypass regulations under false pretences. Conversely, a firm rejection may finally mark the beginning of meaningful enforcement against a long-standing case of illegal development.

Conclusion

Marco Gaffarena’s attempt to rebrand his illegally constructed villa as a sheep farm represents a new low in a long and controversial planning saga. With strong opposition from advisory bodies and a growing wave of public criticism, the fate of this latest application may determine whether Malta’s planning enforcement system can truly stand up to sustained defiance.

FAQs

Who is Marco Gaffarena?
Marco Gaffarena is a Maltese businessman known for his involvement in controversial property dealings and planning violations, particularly the illegal development of a villa in Żebbuġ.

What is the issue with his villa in Żebbuġ?
The villa was constructed illegally on agricultural land. Despite enforcement orders and fines, Gaffarena continued developing the site without proper permits.

What is the new application about?
Gaffarena’s wife has applied to convert the illegal residence into a sheep farm, claiming it will be used to produce ġbejniet (Maltese cheeselets).

Is Josielle Gaffarena a registered farmer?
No, she is not registered as a farmer and has no documented experience in livestock rearing, which has raised serious objections from authorities.

What have the authorities said about the new permit request?
The Agricultural Advisory Committee and the Environment and Resources Authority have both opposed the application, citing lack of credibility and environmental concerns.

Has Gaffarena paid any of the fines imposed for the illegal construction?
No, he has reportedly not paid any of the fines, which are capped at €50,000.

Was the property ever legalised?
No, multiple attempts to regularise the development have been rejected, and the illegality of the structure has been upheld by both the Planning Authority and the Planning Review Tribunal.

What animals are kept at the property?
The villa reportedly houses exotic animals including zebras and llamas, raising additional concerns about the misuse of agricultural land.

Can the Planning Authority still enforce demolition?
Yes, in theory, the PA can enforce demolition, but such actions are rarely pursued in Malta due to legal complexities and public resistance.

What could happen if the sheep farm application is approved?
It may set a concerning precedent, allowing others to use similar tactics to bypass planning laws and legalise unauthorised developments.