European Union ministers have adopted a new recommendation calling for stronger measures to prevent homelessness and housing exclusion, as governments face increasing pressure over housing shortages and the cost of accommodation.

The recommendation was approved at a meeting of employment and social affairs ministers in Luxembourg on Monday, 19 October, and forms part of the European Commission’s wider efforts to address Europe’s housing crisis.

It proposes measures ranging from early intervention for households facing eviction to increased investment in affordable housing, improved access to social services and more coordinated support for people without permanent accommodation.

However, the recommendation is not legally binding. Member States will retain responsibility for deciding which measures to introduce, how they should be financed and the extent to which existing national housing policies should be changed.

More than one million people affected

According to the Council’s announcement, more than one million people are estimated to experience homelessness across the European Union.

The problem extends beyond people sleeping on streets or using emergency shelters.

The term housing exclusion also encompasses households living in inadequate accommodation, people facing imminent eviction and those unable to secure stable housing because of financial or personal circumstances.

The Council identifies poverty, unemployment, domestic violence, disability, poor health and insufficient affordable housing among the factors contributing to the problem.

Housing costs have also risen considerably faster than incomes in several European countries.

Between 2013 and 2024, nominal house prices increased by more than 60 per cent across the EU. In some Member States, average increases exceeded 220 per cent during the same period.

These developments have placed additional pressure on households with lower incomes, particularly in cities where rental accommodation is increasingly expensive and social housing is limited.

The shortage affects not only unemployed people but also individuals in paid employment whose earnings are insufficient to cover market rents.

Prevention before eviction

A central element of the new recommendation is the introduction or strengthening of national strategies intended to prevent homelessness before people lose their accommodation.

The Council encourages Member States to establish early-warning mechanisms capable of identifying households experiencing serious financial or housing difficulties.

Proposed interventions include debt counselling, emergency rental assistance, mediation between landlords and tenants, and appropriate safeguards against forced eviction.

The emphasis on prevention reflects the potentially substantial social and financial consequences of losing stable accommodation.

Once a person becomes homeless, obtaining employment, maintaining healthcare arrangements and securing permanent accommodation can become considerably more difficult.

The Council also calls for particular attention to children, young people leaving care and people facing domestic abuse.

Member States are encouraged to ensure that children have access to adequate housing and that young people leaving institutional or foster care are not placed at risk of homelessness because appropriate support arrangements are unavailable.

Greater emphasis on permanent housing

The recommendation promotes a housing-led approach, under which securing suitable and stable accommodation becomes a central element of the response to homelessness.

This differs from policies relying primarily on emergency shelters or temporary accommodation, although such facilities remain necessary for people facing immediate housing difficulties.

Housing-led programmes can include permanent accommodation accompanied by individual support services, depending on the person’s circumstances.

The Council also proposes simplifying access to social and healthcare services through integrated arrangements that allow people to obtain assistance without repeatedly approaching different public authorities.

One suggested model involves providing access to relevant services through a single contact point, with support from social workers, healthcare professionals and other organisations.

However, access to permanent housing ultimately depends on the availability of suitable properties.

The recommendation therefore calls for increased public and private investment in affordable and social housing, renovation of existing accommodation and support for non-profit housing models.

Questions over implementation and funding

The non-binding character of the recommendation remains one of its principal limitations.

European institutions can coordinate policies, provide guidance and support investment, but national governments and local authorities retain substantial responsibility for housing provision and social welfare arrangements.

The recommendation does not automatically establish a new EU housing entitlement or provide dedicated funding to every Member State.

Its effectiveness will depend on whether governments introduce measures capable of increasing housing supply and reducing the number of people entering homelessness.

The European Federation of National Organisations Working with the Homeless, known as FEANTSA, previously welcomed the Commission’s proposal while identifying shortcomings.

In its assessment of the original proposal, the organisation argued that EU policy should place greater emphasis on permanently ending homelessness rather than primarily managing housing exclusion.

It also questioned the adequacy of funding arrangements and the proposed five-year interval for national progress reporting.

Five-year assessment planned

Under the adopted recommendation, Member States are encouraged to provide the European Commission with information on the effectiveness of their national strategies every five years.

The Commission is expected to evaluate national progress and report to the Council five years after the recommendation’s adoption.

The policy follows the European Affordable Housing Plan, presented in December 2025, and the EU’s Anti-Poverty Strategy, introduced in May 2026.

Together, these initiatives seek to expand the Union’s role in coordinating housing policy without transferring national housing responsibilities to Brussels.

The first indication of whether the recommendation will produce measurable results will come from national decisions on social housing investment, eviction prevention and access to permanent accommodation. Without changes to those practical arrangements, the Council’s commitments will remain principally a framework for voluntary cooperation.

The Council of the European Union has formally adopted revised workplace safety legislation introducing stricter limits on workers’ exposure to potentially dangerous chemicals, including substances used in battery manufacturing, metal production and the chemical industry.

The decision, announced on Monday, 19th October, completes the Council’s approval of the sixth revision of the EU’s Carcinogens, Mutagens and Reprotoxic Substances Directive. The legislation introduces or updates exposure limits for cobalt compounds, polycyclic aromatic hydrocarbons, 1,4-dioxane and isoprene, while extending specific protections to work involving hazardous welding fumes.

According to the Council’s announcement, the measures could prevent approximately 1,700 cases of lung cancer and 19,000 other work-related illnesses across the European Union over 40 years.

New exposure limits for industrial substances

The legislation addresses chemicals encountered in industries that remain important to European manufacturing and industrial employment.

Cobalt and its inorganic compounds are used in several industrial applications, including certain battery technologies, metal processing and specialist manufacturing.

Exposure to cobalt-containing dust and fumes can occur during production processes, particularly where workers handle powders or undertake activities that generate airborne particles.

Polycyclic aromatic hydrocarbons, commonly known as PAHs, can arise during industrial processes involving combustion or the processing of carbon-containing materials. Workers in parts of the steel, aluminium and carbon industries may encounter these compounds.

The new legislation also covers 1,4-dioxane, a chemical used in industrial production processes, including applications connected with chemical and textile manufacturing.

Isoprene was added to the revised framework during negotiations between the Council and European Parliament. The substance is used in the manufacture of synthetic rubber and other industrial products.

Exposure limits establish the maximum permissible concentration of specified hazardous substances in workplace air, subject to the measurement methods and averaging periods laid down in the legislation.

Employers must also apply wider preventive measures, which can include replacing hazardous substances where technically possible, improving ventilation, containing industrial processes and monitoring workplace exposure.

Welding fumes brought within revised framework

One of the significant changes concerns welding fumes, which can contain hazardous substances depending on the materials and processes involved.

Welding is used extensively in construction, automotive production, shipbuilding, infrastructure maintenance and the manufacture of industrial equipment.

Workers may be exposed to mixtures of particles and gases produced when metals are heated, melted or joined.

The revised directive adds relevant welding fumes to the list of substances, mixtures and industrial processes subject to specific requirements under EU occupational safety legislation.

This is particularly relevant where the fumes contain substances classified as carcinogenic, mutagenic or harmful to reproduction.

The legislation does not prohibit welding. Instead, it establishes a clearer legal framework for assessing and reducing occupational exposure.

European institutions have also recognised the need for additional practical guidance to assist employers in applying the new provisions across industries using different welding technologies and materials.

The agreement reached by Parliament and Council in June included provisions addressing protective equipment and the conditions under which it should be used.

Industry granted transition periods

The legislation was negotiated against concerns that some manufacturers would require substantial investment to comply with the revised exposure limits.

Industrial employers may need to install extraction systems, improve ventilation, adapt production equipment or introduce additional monitoring arrangements.

For certain substances, the final compromise therefore includes transitional periods intended to give affected sectors time to make the necessary changes.

The agreed period for the application of new limits on polycyclic aromatic hydrocarbons extends to seven years, with provisions covering carbon and graphite manufacturers.

This was one of the modifications introduced during negotiations to balance occupational health requirements with the technical constraints facing individual industries.

The agreement also provides for regular breaks for workers required to wear personal protective equipment and clarifies how those measures interact with existing EU legislation.

Protective equipment remains part of the safety framework, although the directive also recognises the importance of preventing exposure through engineering controls and improved working practices.

Health and economic implications

The European Commission estimates that more than 2.5 million workers could be exposed to the substances or processes covered by the revision.

Occupational illnesses can produce substantial costs for workers, employers and public health systems, including treatment expenses, sickness absence, reduced productivity and long-term disability.

The Commission previously estimated that the updated legislation could generate up to €1.16 billion in healthcare savings over the coming decades.

These figures are projections derived from assessments of expected exposure reductions rather than outcomes already achieved.

Their accuracy will depend on how effectively Member States implement the legislation and how consistently employers comply with the new requirements.

The measures also form part of the EU’s broader programme to reduce workplace exposure to substances associated with cancer and other serious illnesses.

Two years for national implementation

The directive will enter into force following publication in the Official Journal of the European Union. Member States will then have two years to transpose its provisions into national law.

National authorities will remain responsible for inspections and enforcement, while employers will need to assess which new requirements apply to their operations.

For businesses operating across several EU countries, the revised framework is intended to provide more consistent standards, although national enforcement arrangements may differ.

The practical effects will be most apparent in industrial workplaces where airborne chemical exposure remains a routine occupational risk. Compliance will require manufacturers to examine their production processes before the new requirements become enforceable.