Overview of the Report and Its Origin
The report “Reclaiming Vacant Spaces to Tackle Housing and Homelessness Crises in Europe” is published by FEANTSA, the European Federation of National Organisations Working with the Homeless. FEANTSA coordinates NGOs across the EU to influence policy on homelessness, housing exclusion and affordability. Co‑funded by the European Union through the EaSI strand of the ESF+ programme, the study reflects FEANTSA’s commitment to evidence‑based recommendations for repurposing vacant buildings into homes.
Scale of Vacancy and Homelessness in Europe
Europe holds roughly 47.5 million vacant dwellings, representing about 20 % of the total housing stock. In 2024, FEANTSA recorded 1.27 million people experiencing homelessness. Vacancy rates vary markedly: Croatia (40 %), Bulgaria (38.9 %) and Greece (34.5 %) are the highest, while the Netherlands (4.1 %), Luxembourg (5.8 %) and Norway (6.9 %) are the lowest. Over half (54 %) of vacant units are older buildings requiring retrofitting, linking vacancy mitigation to climate‑friendly renovation.
Legal Instruments and Policy Tools
The report outlines both supportive and punitive mechanisms. Supportive tools include tax relief, public grants, low‑interest loans and one‑stop‑shop services that streamline permits and funding. Punitive measures comprise vacancy taxes, fines ranging from €500 to €12 500 per year, and requisition powers that allow authorities to place vacant properties under public management. Countries such as Austria, Belgium and Germany employ a mix of these approaches, while others like Bulgaria currently lack targeted policies.
Typologies of Vacant Buildings and Conversion Potential
Vacant spaces are categorised as office/commercial, under‑used residential, and historical or religious buildings. Office conversions often need extensive upgrades to heating, ventilation and insulation. Under‑occupied homes can be reconfigured with modest renovations, while heritage properties demand preservation‑sensitive adaptations and higher costs. Successful examples include Belgium’s Bethléem project (church conversion) and Ireland’s Grand Parade (commercial building turned mixed‑use housing).
Housing Needs Assessment Across Countries
FEANTSA highlights diverse national methodologies for estimating housing needs. Austria combines household formation data with vacancy allowances; Belgium uses demographic forecasts; France employs tools like the LOVAC database to map long‑term vacancies. The United Kingdom’s HEDNA framework integrates homelessness, overcrowding and affordability metrics. Consistent data collection remains a challenge, especially in separating second homes from truly vacant units.
Recommendations for Sustainable Repurposing
Key recommendations stress aligning vacancy strategies with local housing demand, prioritising vulnerable groups, and ensuring long‑term affordability through rent controls, subsidies and social‑housing commitments. The report urges the development of detailed vacancy registries, stakeholder collaboration (public authorities, NGOs, private investors) and the use of climate‑aligned retrofitting to meet EU sustainability targets. Emphasis is placed on targeting well‑connected urban areas for immediate impact while also supporting rural repopulation initiatives.
Impact Projections and Potential Contributions
If Europe could mobilise just 300 000 vacant homes annually, this would cover less than three years of the continent’s construction targets, underscoring the importance of efficient conversion. The report estimates that repurposing could alleviate a substantial portion of the housing shortage, provided legal, financial and technical barriers are addressed. Integrating vacant‑space conversion into broader affordable‑housing programmes offers a pathway to reduce homelessness, improve housing adequacy and contribute to the EU’s climate‑neutral objectives.