New EMN inform examines alternatives to providing housing in-kind for applicants for international protection

The EMN inform “Alternatives to providing housing in-kind for applicants for international protection” compares national approaches to providing financial support for housing for applicants for international protection, during the period from January 2020 to October 2025. The inform is based on contributions from 22 EMN member countries, as well as Norway and Serbia. The Inform highlights the amendment to the Act on the Reception of Asylum Seekers and Others that entered into force in Sweden in March 2025, which affects the right to a daily allowance based on the accommodation of the applicant for international protection.

The EMN inform provides comparative information on how financial allowances are used in certain EMN Member States, as well as in Norway and Serbia. It This inform provides comparative information on how financial allowances used in some EMN Member Countries and Norway and Serbia complement reception systems while safeguarding access to services and adequate living standards.

Background

Reception systems for applicants for international protection traditionally rely on in‑kind housing such as reception centres. Alternatives to in‑kind housing refer to measures where governments provide financial allowances or vouchers instead of in-kind accommodation, enabling applicants to secure housing independently while still ensuring adequate living conditions in line with EU standards. These alternatives allow greater flexibility and autonomy for applicants, at the same time as they meet the requirements set in the recast Reception Conditions Directive 2013. Other types of accommodation than housing in-kind could also support early integration by allowing individuals and families, particularly those likely to receive protection, to live more independently within local communities.

Key findings

The inform shows that eligibility for financial allowance schemes is generally tied to administrative requirements or lack of available in-kind places. The level of allowance is usually determined either by nationally fixed rates, typically by regulation, or locally determined amounts that reflect housing costs or individual needs. Five EMN Member Countries reported implementing financial allowances as alternatives to in-kind housing as part of their national reception systems during the reporting period. Austria and Poland operate continuous allowance schemes, while Cyprus, France and Ireland mainly use financial support when reception capacity is constrained. In addition to these five EMN Member Countries, Germany reported using financial allowances to cover housing in exceptional cases depending on individual needs and at the discretion of federal states.

Selection of developments in EMN Countries

The provision of essential services such as legal support, psychological assistance, and healthcare remains integral to the reception systems of countries using alternatives to in-kind housing. The financial allowance and the methods differ to reflect national frameworks and applicant needs. These variations between the countries’ methods arise from differing national regulations, integration strategies, and the balance between centralised and decentralised service provision.

• While some EMN countries, like France and Ireland, ensure continuity of support regardless of accommodation type, others tailor their systems towards greater independence or specific mechanisms.
• Austria encourages self-sufficiency for those outside reception centres but maintains equal entitlements.
• Poland delivers medical and psychological services via contracted providers and dedicated facilities.

Situational overview of Sweden

The inform highlights the legislative amendment, regarding the Act on the Reception of Asylum Seekers and Others, that entered into force in Sweden in March 2025. The amendment affects the right to a daily allowance based on the applicant’s accommodation. Prior to the legislative amendment, applicants for international protection who lived in self-arranged housing were entitled to a higher amount of allowance than those living in accommodation assigned by the Swedish Migration Agency, to help cover the costs of their housing arrangements.

After the amendment, applicants living in self-arranged housing no longer has the right to allowance, except in certain exceptional cases. Following the legislative amendment, as a general rule, only those residing in an accommodation assigned by the Swedish Migration Agency and who are unable to support themselves can be granted financial allowance. If an applicant living in one of the Swedish Migration Agency’s accommodations has an income or personal assets, they must pay for the accommodation and the included meals.