Neither refugees nor beneficiaries of subsidiary protection are obliged to stay in reception centres or other forms of collective accommodation centres. However, in many places, particularly in the big cities, it often proves very difficult for beneficiaries to find apartments after they have been granted protection status. The pressure on the housing market has been increasing since 2022. The reasons are numerous. The general housing situation in Germany is very tense. According to an economist who advises local cities in their building projects, the number of immigrants does not meet the number of newly constructed flats and the building capacity is even decreasing.[1] The federal government’s target of 400,000 new homes annually is still not met by reality. In 2024, the Central Association of the German Construction Industry expected a maximum of only 255,000 completions of new flats – a significant decrease compared to 294,400 in 2023.[2] This shortfall exacerbates the already tense housing situation, making it increasingly challenging for beneficiaries to secure adequate housing. The economist criticises that the funding of the government for new low-cost units does not suffice. A network of welfare associations, tenant associations and the construction union demand EUR 50 billion to combat the shortcomings in housing. Refugees and beneficiaries of subsidiary protection de facto compete with the already existing lack of low-cost units, which leads to tensions and resentment against refugees. Additionally, beneficiaries of international protection face discrimination in the regular job market or scepticism if the landlords hear that the rent is paid by the Social Welfare Office.[3] Infomigrants has collected a series of reports on the current situation of housing for beneficiaries of international protection.[4] As a consequence, it has been reported that many beneficiaries stay in collective accommodation centres for long periods. This can pose a problem for municipalities since it is not clear on which legal basis they are staying in those centres and which institution has to cover the costs.[5]
Recent data on the housing situation of refugees in Germany remains scarce. However, past studies provide insights into key trends and challenges. A 2020 representative study found that 83% of individuals with protection status, who arrived as asylum seekers between 2013 and January 2016, were living in individual accommodation rather than collective housing. [6] A 2022 WISTA journal article, based on the 2017 Microcensus, confirmed that most refugees in Germany reside in private households, with a significant proportion in shared accommodations.[7] The study highlighted overcrowding and difficulties in securing independent housing, while also noting that the Microcensus data does not fully capture the complexities of refugees’ living conditions. Similarly, a BAMF Short Analysis (January 2022) examined refugees’ residential mobility using IAB-BAMF-SOEP survey data.[8] The findings revealed that many refugees relocate frequently, mainly due to legal regulations, housing conditions, and employment factors. The study emphasised that frequent moves hinder integration and called for more stable housing solutions. A later BAMF analysis (March 2023) focused specifically on Ukrainian refugees, showing that while most initially stay in collective accommodations, many eventually move into private housing.[9] Access to independent housing was strongly influenced by family connections, employment, and language skills. The study suggested that targeted support in these areas could improve housing outcomes for refugees.
Some detailed figures are available for the Federal State of Bavaria: In 2022, 20.2% of persons living in collective accommodation centres in March 2022 were considered to be ‘false occupants’ (Fehlbeleger), which is the bureaucratic term for persons who are allowed to leave the centres but have not found an apartment yet. Out of the 36,835 persons living in decentralised accommodation, 25.6% are ‘false occupants’ (i.e., 9,429 persons).[10]
A study by the Federal Institute for Research on Building, Urban Affairs and Spatial Development from October 2017 examines the housing situation of beneficiaries of international protection in 10 German municipalities. While more recent studies are unavailable, the issues persist. Key findings include:
- Housing market integration does not equal societal integration: In municipalities where refugees find housing, job and training opportunities are often lacking. Limited access to public transport in rural areas further hinders integration by making it difficult to reach essential services and social networks.
- A tense housing market obstructs refugee integration: In large and university cities with housing shortages, many refugees remain in emergency and collective accommodation for long periods. Social housing construction is slow, and in some cases, bottlenecks lead to an informal housing market.
- Placement in flats is not always better than collective accommodation: Decentralised housing supports integration only if refugees can take over rental agreements. In some cases, overcrowded flats with limited privacy and substandard conditions offer no real improvement over collective housing.
If refugees or beneficiaries of subsidiary protection cannot provide for the costs, the rent for a room or an apartment is covered by the local social welfare office or the local job centre, but – as is the case for all beneficiaries of social aid in general according to national social law – only up to an ‘adequate’ level. What is considered ‘adequate’ depends on the local housing market, so beneficiaries of protection have to inquire with the local authorities as to what amount of rent will be reimbursed.
If beneficiaries of protection have an income but are still living in collective accommodation, authorities regularly impose fees as a contribution to the operational costs of the centres. However, the fees imposed by municipalities can vary significantly and, in some cases, exceed local apartment rental prices, placing a substantial financial burden on refugees. In Hamburg (as of September 1, 2024), the standard fee per person per month is € 850. For individuals within certain income brackets, a reduced fee of € 304 is applied for the first person in a household, with an additional € 210 for each subsequent person.[11] In Berlin, reports indicated in November 2024 that refugees receiving citizen’s income (Bürgergeld) and residing in accommodations managed by the State Office for Refugee Affairs (LAF) are charged a monthly fee of € 763. This amount can be reduced to € 294 for those with personal income.[12] In Lower Saxony, fees differ across municipalities. For instance, the city of Garbsen charges between € 753.60 and € 855.30 per person monthly, while the district of Harburg imposes a maximum of € 180 per person per month.[13] These costs, some of which appear excessive, result from a calculation which includes all operational expenses for the centres, such as costs for social services as well as security and maintenance. In practice, the fees may lead to a situation in which refugees have to pass on their complete income to the local authorities in exchange for a place in a shared room.[14]
Many local organisations and initiatives try to support refugees in finding apartments. One initiative operating for the whole of Germany, ‘Living Together Welcome’ (Zusammenleben willkommen, formerly ‘Refugees Welcome/Flüchtlinge Willkommen’) runs an online platform providing assistance for people who want to share a flat with asylum seekers and refugees.[15]
Since August 2016, refugees and beneficiaries of subsidiary protection are generally obliged to take up their place of residence within the Federal State in which their asylum procedures have been conducted. Furthermore, under Section 12a of the Residence Act authorities can oblige them to take up a place of residence in a specific municipality within the Federal State (see section on Freedom of movement). One of the provisions introduced in the context of the new law refers explicitly to refugees and beneficiaries of subsidiary protection who still live in a reception centre or another form of temporary accommodation after their status has been determined. They can be obliged to take up their place of residence in a ‘specific place’ in order to provide themselves with ‘suitable accommodation’.[16] The Federal States which have applied this regulation so far refer beneficiaries of international protection to a municipality, not to a particular apartment.
[1] ZDF, Flüchtlingskrise steigert Wohnungsnot, 24 October 2023, available in German at: https://bit.ly/3I2Y5q2.
[2] Wolfgang Schubert-Raab, ‘Bauwirtschaft zwischen Krise und Aufbruch’ (Allgemeine Bauzeitung, 10 January 2025), available in German here.
[3] Infomigrants, Germany: Finding housing as a refugee – an obstacle course (1/3), 14 September 2022, available at: https://bit.ly/3HodAI7.
[4] Infomigrants, Germany: Finding housing as a refugee – an obstacle course (1/3), 14 September 2022, available at: https://bit.ly/3HodAI7; Infomigrants, Germany: Finding housing as a refugee – an obstacle course (2/3), 19 September 2022, available at: https://bit.ly/3Rq1kve; Infomigrants, Germany: Finding housing as a refugee – an obstacle course (3/3), available at: https://bit.ly/3XWdoa9.
[5] In most Federal States, the municipalities receive support for accommodation of asylum seekers from the Federal State’s budget, but it is not regulated whether this applies to recognised refugees as well. According to a media report, the Federal State of Thuringia has declared that it will cover the municipalities’ costs if refugees are housed in collective accommodation centres: mdr.de, ‘Federal State opens accommodation centres for recognised refugees’, 27 May 2017, available in German at: http://bit.ly/2notjRc.
[6] Tanis, Kerstin (2020): Entwicklungen in der Wohnsituation Geflüchteter, Ausgabe 05|2020 der Kurzanalysen des Forschungs- zentrums Migration, Integration und Asyl des Bundesamtes für Migration und Flüchtlinge, available in German at: https://bit.ly/3qSymZk.
[7] Sonja Haug and Simon Schmidbauer, ‘Household and Housing Structures of Refugees in Germany – Possibilities and Limitations of Microcensus Analysis’ (WISTA – Wirtschaft und Statistik, Issue 1, 2022), available in German here.
[8] Kerstin Tanis, ‘The Housing History of Refugees in Germany’ (BAMF-Kurzanalyse, January 2022), available in German here.
[9] Manuel Siegert et al, Entwicklung der Wohnsituation ukrainischer Geflüchteter in Deutschland, 2023, available in German here.
[10] Bavarian Ministry for the Interior, Sport and Integration, ‘Unterbringung und Versorgung’, available in German at: https://bit.ly/3rIuDwL.
[11] City of Hamburg, ‘Adjustment of fees for accommodation in reception centres’, available in German here.
[12] Federal Ministry of Labour and Social Affairs (BMAS), ‘FAQs on Ukrainian refugees’, available here.
[13] Niedersächsischer Flüchtlingsrat, ‘Fees in municipal accommodation’, available in German here.
[14] Frankfurter Rundschau, ‚Wohngebühren für Flüchtlinge: Monatlich bis zu 930 Euro‘, 12 August 2019, available at: https://bit.ly/3nQtMsQ.
[15] Zusammenleben Willkommen, WG-Zimmer für geflüchtete Personen, available at: https://bit.ly/3uGyrUI.
[16] Section 12a(2) Residence Act.