Phoenix 24
New housing recommendations confront rising costs and social exclusion.
BRUSSELS
The Council of the European Union has adopted a recommendation urging all 27 member states to strengthen emergency rental assistance, protect vulnerable households against forced eviction and expand affordable housing. The decision, adopted on October 19, reflects growing concern that Europe’s housing crisis is threatening social stability and leaving increasing numbers of people unable to secure adequate accommodation.
The initiative marks a coordinated political response to housing exclusion, although it does not create binding European legislation or establish an automatic right to rental subsidies. National governments remain responsible for deciding how to implement the recommended measures within their own legal and financial systems.
The Council is encouraging countries to identify households at risk of losing their homes before eviction becomes unavoidable. Proposed measures include early-warning mechanisms, debt counseling, mediation between tenants and landlords, and temporary financial assistance for families struggling to pay rent.
The emphasis on prevention reflects an important policy distinction. Emergency shelters can provide immediate protection, but they do not necessarily address the economic and institutional conditions that cause people to lose their homes.
European authorities estimate that more than one million people experience homelessness across the EU. The problem includes individuals sleeping outdoors, but housing exclusion can also involve unstable accommodation and situations in which people cannot maintain secure access to suitable housing.
Rising property prices have intensified the pressure. According to the Council, nominal house prices increased by more than 60% across the EU between 2013 and 2024, outpacing household income growth. Several member states experienced increases exceeding 220%, illustrating how unevenly the housing market has developed.
These figures concern property purchase prices rather than rental costs. Nevertheless, they provide evidence of a broader affordability problem affecting access to housing across different income groups.
The Council is also asking member states to strengthen their national and regional strategies through measurable objectives and defined implementation periods. Rather than relying exclusively on temporary assistance, governments are encouraged to connect housing policy with healthcare, social protection and employment-related services.
One proposed mechanism involves creating simplified access points where people experiencing homelessness can receive coordinated assistance. Such services would connect individuals with social security agencies, healthcare professionals, social workers and other community organizations.
Personalized support is another priority. The Council recommends assessing individual circumstances instead of assuming that every household faces identical barriers to housing.
Children receive particular attention. Member states are encouraged to ensure that no child is deprived of adequate accommodation and that young people leaving institutional or foster care can access housing and appropriate support.
The recommendation also addresses the shortage of affordable and social housing. Proposed responses include public and private investment in new homes, renovation of existing properties, improved use of available housing stock and support for nonprofit housing models.
Increasing supply, however, presents substantial challenges. Construction costs, land availability, financing conditions and local regulations differ considerably across European countries. Additional investment may improve availability over time, but it cannot immediately resolve every form of housing exclusion.
The initiative also raises questions about how governments balance tenant protection with the functioning of rental markets. Measures designed to prevent homelessness must be implemented within national legal frameworks while considering their consequences for housing availability and investment.
Importantly, the Council has not imposed a general European prohibition on evictions. Its recommendation calls for safeguards against forced eviction and interventions that help vulnerable households avoid losing their homes.
The nonbinding nature of the decision means that its practical consequences will depend on national implementation. Member states are encouraged to report on the effectiveness of their strategies every five years, allowing the European Commission to review progress.
The recommendation forms part of the European Affordable Housing Plan, introduced in December 2025, and the EU’s broader anti-poverty strategy.
For European institutions, the underlying challenge extends beyond housing prices. Secure accommodation influences access to employment, education, healthcare and community participation, making residential exclusion a structural social concern.
The Council has now established a common direction for national action. Whether it produces measurable improvements will depend on financing, political commitment and the ability to translate broad recommendations into effective local policies.
Beyond the Numbers, the Consequences.