Overview of the Research Brief
The brief âBeyond Affordability: Bringing Housing Space Inequality on the Political Agendaâ is published by the Progressive Politics Research Network, a centreâright thinkâtank that produces policyâfocused research. It is authored by Sebastian Kohl, Max Steinhardt and Simon Voss, scholars affiliated with Freie UniversitĂ€t Berlin and active in housingâpolicy 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 panâEuropean trends.
Key Findings on Overcrowding and Underâoccupation
Across Europe, overcrowding (less than one room per person) and underâoccupation (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 underâoccupied. Perceived overcrowding is even higher, with oneâinâfive respondents feeling their dwelling is too small. Underâoccupation is less often perceived as a problem, despite its prevalence.
Demographic Drivers of Space Inequality
The brief identifies strong socioâdemographic patterns. Migrants, young adults (18â25), single parents, families with children, lowâincome renters and urban tenants face higher overcrowding risks. Immigrants are 11 percentage points more likely to be overcrowded than nativeâborn residents, even after controlling for income and education. Conversely, older adults, homeowners, and rural households are more likely to be underâoccupied, with the highest underâoccupation rates among highâincome 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, housingâexchange schemes, and municipalârun apartment swaps that avoid carbonâintensive 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). Underâoccupation is more common in countries with higher homeâownership rates and larger detached houses, such as Spain and Poland. Across the EU, vulnerable groupsâyoung adults, single parents, renters, and urban residentsâexperience higher overcrowding, while older, higherâincome homeowners tend toward underâoccupation.
Methodological Notes and Data Limitations
The brief notes that roomâcount definitions vary across countries, affecting comparability. Harmonisation efforts (e.g., adjusting for kitchen inclusion) can change overcrowding estimates dramaticallyâfrom 6.8 % to 20.3 % in Spain, Ireland and Finland. Such methodological caveats mean that crossânational figures should be interpreted with caution.
Recommendations for PanâEuropean Action
To address housingâspace inequality sustainably, the brief suggests: (1) information campaigns highlighting the extent of underâoccupation; (2) financial incentives for older households to downsize; (3) facilitating interâgenerational housing exchanges; (4) expanding municipal swap platforms similar to Berlinâs model; and (5) integrating spaceâallocation goals into broader climateâfriendly housing policies. These steps aim to reduce carbon emissions from new construction while improving livingâspace equity across Europe.

