Beyond Affordability: Bringing Housing Space Inequality on the Political Agenda

Overview of the Research Brief

The brief “Beyond Affordability: Bringing Housing Space Inequality on the Political Agenda” is published by the Progressive Politics Research Network, a centre‑right think‑tank that produces policy‑focused research. It is authored by Sebastian Kohl, Max Steinhardt and Simon Voss, scholars affiliated with Freie Universität Berlin and active in housing‑policy research. The document analyses how European housing debates focus on affordability while neglecting the distribution of living space, and it draws on detailed German data to illustrate broader pan‑European trends.

Key Findings on Overcrowding and Under‑occupation

Across Europe, overcrowding (less than one room per person) and under‑occupation (more than one surplus room) are both rising. In Germany, 13 % of urban residents lived in objectively overcrowded homes in 2022, up from 8 % a decade earlier, while 35 % were objectively under‑occupied. Perceived overcrowding is even higher, with one‑in‑five respondents feeling their dwelling is too small. Under‑occupation is less often perceived as a problem, despite its prevalence.

Demographic Drivers of Space Inequality

The brief identifies strong socio‑demographic patterns. Migrants, young adults (18‑25), single parents, families with children, low‑income renters and urban tenants face higher overcrowding risks. Immigrants are 11 percentage points more likely to be overcrowded than native‑born residents, even after controlling for income and education. Conversely, older adults, homeowners, and rural households are more likely to be under‑occupied, with the highest under‑occupation rates among high‑income homeowners.

Policy Implications for Sustainable Housing

The authors argue that the misallocation of existing space, rather than a pure shortage, calls for policies that reallocate housing rather than build new units. Sustainable solutions include incentives for downsizing, housing‑exchange schemes, and municipal‑run apartment swaps that avoid carbon‑intensive construction. Such measures align with climate goals by reducing the need for new construction while improving spatial equity.

European Context and Comparative Data

Eurostat data show that overcrowding exceeds 30 % in several Eastern and Southern EU states (e.g., Romania, Bulgaria, Italy) and falls below 5 % in Northern and Western countries (e.g., Netherlands, Belgium). Under‑occupation is more common in countries with higher home‑ownership rates and larger detached houses, such as Spain and Poland. Across the EU, vulnerable groups—young adults, single parents, renters, and urban residents—experience higher overcrowding, while older, higher‑income homeowners tend toward under‑occupation.

Methodological Notes and Data Limitations

The brief notes that room‑count definitions vary across countries, affecting comparability. Harmonisation efforts (e.g., adjusting for kitchen inclusion) can change overcrowding estimates dramatically—from 6.8 % to 20.3 % in Spain, Ireland and Finland. Such methodological caveats mean that cross‑national figures should be interpreted with caution.

Recommendations for Pan‑European Action

To address housing‑space inequality sustainably, the brief suggests: (1) information campaigns highlighting the extent of under‑occupation; (2) financial incentives for older households to downsize; (3) facilitating inter‑generational housing exchanges; (4) expanding municipal swap platforms similar to Berlin’s model; and (5) integrating space‑allocation goals into broader climate‑friendly housing policies. These steps aim to reduce carbon emissions from new construction while improving living‑space equity across Europe.