Types of accommodation

Republic of Ireland

Country Report: Types of accommodation Last updated: 02/06/25

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Irish Refugee Council Visit Website

Reception capacity and accommodation crisis

Available accommodation within the Direct Provision estate has been decreasing since 2016, due to a number of factors, including the expiry of contracts between IPAS and accommodation providers and the ongoing housing crisis, which is reducing available accommodation sites. During 2019, IPAS added 735 bed spaces to their portfolio, through an increase in the capacity of existing centres and with the opening of three new accommodation centres. IPAS also managed the closing of the Hatch Hall accommodation centre in Dublin, therefore the net increase in 2019 of bed spaces was 515 in total.[1] Despite this, the rise in the number of applicants led to 1,559 protection applicants being placed in temporary accommodation by the end of 2019. As of September 2020, approximately 1,382 individuals were resident in emergency accommodation.[2] As of December 2021, approximately 1,046 individuals were resident in emergency accommodation.[3] As of January 2023, the number of individuals resident in emergency accommodation had risen to 11,414.[4] As of February 2024, the number of individuals resident in emergency accommodation had further increased to 18,702.[5] As of February 2025, the total number of individuals residing in emergency accommodation was 24,974.[6]

In the experience of the Irish Refugee Council in 2020 and 2021, requests for re-entry into Direct Provision under the Regulations by people who had not taken up an initial offer of accommodation or have since experienced a change in their circumstance have been refused on the grounds of a lack of accommodation or have been subject to considerable delays. These delays were further exacerbated by the COVID-19 pandemic. In some cases, individuals were waiting several months to re-access accommodation in circumstances where they were rendered homeless.

These difficulties persisted throughout 2022, 2023, and 2024. Over the course of 2022, the Irish Refugee Council assisted approximately 147 international protection applicants experiencing or at risk of homelessness. A number of these individuals had not accessed the Direct Provision system upon their arrival in the State and had subsequently been evicted from private accommodation arrangements, while others had lost their accommodation within the Direct Provision system due to alleged breaches of the House Rules. In the experience of the Irish Refugee Council, whereby re-accommodation was requested within the Direct Provision system, such requests went unanswered by IPAS for several weeks, and sometimes up to two months. During this period, applicants were left without access to shelter and were forced to sleep on the street, often in inclement weather. This cohort of applicants included individuals with medical vulnerabilities. While many clients were ultimately re-accommodated following sustained advocacy by the Irish Refugee Council’s Information and Referral Service and Independent Law Centre, as well as intervention by the organisation’s CEO, these practices amount to a clear breach of the State’s obligations pursuant to the Reception Conditions Regulations and continued to occur as of February 2025, albeit to a slightly lesser extent. Additionally, many applicants now receive a notice in writing outlining the reasons for their eviction, thus making it possible for such applicants to appeal reductions and withdrawals of their reception conditions.[7]

The personal circumstances of persons living outside Direct Provision are generally unknown. According to figures supplied by IPAS, as of January 2022, 902 international protection applicants were living outside Direct Provision in private rented accommodation. In terms of people who lived in Direct Provision and then subsequently left it for whatever reasons whilst their asylum application was pending, for example to live with family members, a partner or friends, it is very difficult to access the Direct Provision system again, should their situation change.

Throughout 2024, there was a significant increase in the number of alleged arson attacks carried out on sites designated for use as Direct Provision accommodation by anti-migrant protesters. A disused convent in Lanesboro, Co Longford was set on fire in January. The building was going to be used to house 85 Ukrainians, but the owner pulled out of an agreement with the Department of Integration after the fire due to concerns for his family’s safety. Subsequently, in February 2024, the former St. Brigid’s Nursing Home in Crooksling was also the subject of an arson attack, with more than 40 firefighters required to bring the fire under control. The site subsequently became operational as tented accommodation for single males. In April, a building known as Trudder House in Newtonmountkennedy village in Wicklow was set on fire. The Department of Integration had been assessing the site after it accepted a HSE offer to use the vacant building and its grounds to accommodate asylum seekers. In July 2024, violence broke out at a site in Coolock that was earmarked to house asylum seekers but which had been the subject of a blockade by protesters for a number of months. The protests began as a company began works on the site. Almost 200 gardaí were involved in dealing with the disorder, in which fireworks and rocks were thrown. 15 people were arrested and charged on the evening of the incident, with several more following.[8]

 

Direct Provision centres

As of December 2021, there were 45 Direct Provision accommodation centres located nationwide.[9] There were a further 24 emergency accommodation locations such as in hotels and guesthouses.[10] Owing to the significant increase in the number of protection applicants arriving in the State in 2022, as of November 2022, there were 47 Direct Provision accommodation centres and a further 79 emergency accommodation centres located nationwide.[11] As of February 2024, there were 270 Direct Provision centres located nationwide, including 216 emergency centres and three centres containing tented accommodation.[12] As of February 2025, there were 320 Direct Provision centres located nationwide, including 265 emergency centres and six centres containing tented accommodation.[13]

The capacity and occupancy of Direct Provisions centres in 2021, 2022, 2023, and 2024 were as follows:

Capacity and occupancy of Direct Provision centres
2021 2022 2023 2024
Centre Capacity Occupancy Capacity Occupancy Capacity Occupancy Capacity Occupancy
Carlow 244 434
Cavan 131 118 158 168
Clare 467 353 474 540 726 1,008
Cork 1,041 800 1,455 1,313 1,639 2,005
Donegal 306 252 769 678 1,707 2, 036
Dublin 922 723 7,794 9,816 11, 205
Galway 532 393 829 684 1,288 2, 131
Kerry 500 375 863 805 970
Kildare 295 213 596 540 817 674
Kilkenny 0 147 163
Laois 265 229 491 610 480
Limerick 181 164 283 402 588
Leitrim 130 105 130 105 87 245
Longford 82 63 82 69 141 141
Louth 89 85 464 498 875 1, 221
Mayo 266 211 461 453 1,353 1, 645
Meath 600 666 778 944 906 976
Monaghan 280 238 427 485 572 698
Offaly 168 98 232 162 259 489
Roscommon        – 83 113 194 240
Sligo 218 168 218 268 432 699
Tipperary 296 210 423 518 596 816
Waterford 412 335 487 498 652 623
Wexford 114 81 102 103 591 637
Westmeath 425 345 657 716 828 1, 043
Wicklow 111 81 890 1,004 1,261 1, 533
Total 7,184 5,691 19,240 27,106 32, 948

Source:

  • Figures for 2021 (valid as of December 2021): Data provided by IPAS, January 2022.
  • Figures for 2022 (valid as of January 2023): IPAS, DCEDIY IPAS – Weekly Stats, 29 January 2022, available at: https://bit.ly/3Y42e37.
  • Figures for 2023 (valid as of February 2024): According to the Minister for Children, Equality, Disability, Integration and Youth, figures in respect of capacity for 2023 could not be provided due to “variability of data as a result of the emergency nature of the accommodation”, as well as for reasons of privacy and security (Minister for Children, Equality, Disability, Integration and Youth, Response to Parliamentary Question No. 1080, 20 March 2024, available at: https://tinyurl.com/2mnz8jsr); occupancy figures from IPAS, ‘IPAS Statistics Weekly Report’, 4 February 2024, available at: https://bit.ly/4aP5UvN.
  • Figures for 2024 (valid as of 2nd February 2025): IPAS, DCEDIY IPAS – Weekly Stats, 2 February 2025, available at: https://tinyurl.com/2js3rwtn.

As of November 2021, approximately 7,089 people resided in Direct Provision and emergency accommodation.[14] As of January 2023, 19,635 people were accommodated within IPAS system as a whole, 4,082 of which were children.[15] As of February 2024, 27,106 people resided in Direct Provision, 6,067 of whom were children.[16] As of February 2025, there were 32, 948 people resident in Direct Provision, 9,162 of whom were children.[17]

Of those centres in the IPAS portfolio, only three were built (“system built”) for the express purpose of accommodating protection applicants. The majority of the portfolio comprises buildings which had a different initial purpose i.e., former hotels, guesthouses (B&B), hostels, former convents / nursing Homes, a holiday camp and a mobile home site. IPAS is considering the option of moving towards a capital investment-based approach in the provision of accommodation that would involve building customised facilities.[18]

As of March 2023, there are forty single male only accommodation centres located throughout the country. There are six female-only reception centres located in Kerry, Galway and Dublin.[19]

The Balseskin reception centre, with a capacity of 537, was previously designated as a reception centre where all newly arrived protection applicants are accommodated. The centre as of 15 September 2020 had an occupancy rate of 264 out of 537 places.[20] However, In March 2022, Citywest Hotel and Convention Centre was contracted by the International Protection Accommodation Service and repurposed as a transit hub for the processing of beneficiaries of Temporary Protection, as well as for the accommodation of newly arrived international protection applicants. The vast majority of newly arrived protection applicants are now accommodated at Citywest. As of the 12th December 2022, there were 764 international protection applicants residing at the facility.[21] As of February 2024, 558 applicants were resident at the facility.[22] As of February 2025, 451 applicants were resident at the facility.[23]

Direct provision centres management and evaluation

Seven centres are state-owned: Knockalisheen, Clare; Kinsale Road, Cork; Atlas House Killarney, Atlas House Tralee, Johnston Marina and Park Lodge, Kerry; and Athlone, Westmeath. Seven centres are owned by the Irish State with the remainder privately owned. All reception centres are operated by private external service providers who have a contract with IPAS. Executive responsibility for the day-to-day management of reception centres lies with the private agencies, which provide services such as accommodation, catering, housekeeping etc. As of October 2020, there were 26 private companies that have a contract for services with the Department of Justice for the provision of premises that meet required standards and support services for protection applicants. Of these companies, two have a contract to provide management, catering, housekeeping and general maintenance services in state owned accommodation centres.[24]

It is the role of the Department of Children, Equality, Integration, Disability and Youth to oversee the provision of these services. The National Standards developed establish a minimum set of standards for reception centres to meet if they are to continue providing services.[25] The National Standards became legally binding on 1 January 2021.[26] It was hoped that a mechanism for independent monitoring of the implementation of the standards would be established soon thereafter, however inspections continued to be carried out by IPAS and a private contractor engaged by IPAS. In October 2021, Minister O’Gorman confirmed that that Direct Provision Accommodation Centres are to be monitored by the Health Information and Quality Authority (HIQA) for compliance with the National Standards.[27]

Throughout 2022, the Department of Children continued its engagement with HIQA and various other stakeholders regarding HIQA’s proposed monitoring of IPAS centres against the National Standards, which became legally binding in January 2021. An Expert Advisory Group was established, comprising of a range of different stakeholder organisations, service providers and service users, in order to inform this process and several meetings of the group were held throughout the year.[28] Concurrently, in consultation with the Office of the Attorney General, the Department of Children drafted a Regulation in which to provide the necessary legal basis for HIQA’s monitoring role.[29]

As of 9th January 2024, the Health Information and Quality Authority (HIQA) assumed the responsibility for monitoring and inspecting International Protection Accommodations Service centres against the legally binding National Standards for Accommodation Offered to People in the Protection Process. This function was provided to HIQA by an amendment to the European Communities (Reception Conditions) Regulations 2018 by way of the European Communities (Reception Conditions) (Amendment) Regulations 2023 (S.I. No. 649 of 2023).[30]

In April 2024, HIQA published its first inspection reports.[31] As of November 2024, reports had been published in respect of nine centres. Three of the centres inspected were found to have no non-compliances identified against the National Standards. The remaining six had varying levels of compliance.  The areas of non-compliance identified included assessment and response to special needs of residents, contingency planning and  preparedness, accommodation, food, catering and cooking facilities, governance, accountability and leadership, responsiveness of workforce and safeguarding and protection.[32] In one of the centres, inspectors found that a safeguarding incident involving the welfare of four children was not managed in line with national policy or guidance.[33]

Whereby centres are subject to inspection, a HIQA inspector will visit the IPAS centre and speak with residents, members of staff and centre managers in order to gain an insight into how the service is run. Inspectors will also examine records held by IPAS centres. Some inspections will be announced, while others will be unannounced. After the inspection, HIQA inspectors will prepare a report in respect of the centre and determine the quality of the services and support provided. Inspection reports will be published on HIQA’s website under the inspection reports section. If improvements are required in IPAS centres, the service provider will be required to submit a plan on how and when these improvements will be made. The implementation of these plans will be closely monitored by HIQA.[34]

While the commencement of HIQA’s inspection and monitoring function is welcomed, the Irish Refugee Council remains deeply concerned regarding the exclusion of emergency centres from HIQA’s remit. In the experience of the IRC, the most difficult conditions persist within ‘emergency’ and ‘pre-reception’ facilities, and not in permanent centres. Additionally, the number of emergency centres operating in the country has far surpassed that of permanent centres. As of February 2025, IPAS operated 270 properties across the State, of which just 49 were permanent centres.[35]

Emergency Accommodation Beds

In September 2018, the Direct Provision estate reached capacity and no accommodation was available for newly arriving protection applicants, as the Balseskin centre had no available places. After intensive representations and media attention on the issue, alternative accommodation was provided by IPAS on an emergency basis. This involved the contracting of accommodation in hotels and holiday homes to house protection applicants on a temporary basis pending IPAS contracting for more permanent accommodation centres.[36]

As of February 2025, capacity within the Direct Provision accommodation system remained a significant and ongoing issue. 2024 saw the continued reliance on the use of emergency centres. Such centres often comprised of disused offices, large conference rooms, schools, and sports halls in order to accommodate international protection applicants. The Irish Refugee Council has been alerted to numerous grievous risks to vulnerable residents accommodated in these centres, including to women and minor children. These reports included significant child protection issues and serious privacy concerns. Throughout 2024, the State also continued to use tented accommodation to accommodate international protection applicants at various locations around the country. While initially intended as a temporary measure, many applicants spent months residing in wholly unsuitable accommodation which did not meet their basic needs and exposed them to at times freezing and wet weather conditions.

In March 2024, it was announced that the site of a former nursing home, located at Crooksling in southwest Dublin, would be repurposed for use as tented accommodation for male international protection applicants.[37] Following the opening of the site, many residents reported sub-standard living conditions which posed a risk to the health, personal safety, and wellbeing of individuals living at the facility. Initially it was believed that accommodation at the site would be offered as an alternative to street homelessness in respect of applicants who were not offered accommodation on arrival in the State. However, it subsequently became apparent that the site would be classified as ‘a designated accommodation centre’ for the purposes of granting material reception conditions. Many individuals would therefore spend indefinite periods at the site following periods of homelessness on arrival in the State. In July 2024, it emerged that a resident, accommodated at the site following a period of homelessness upon his arrival in the State, had instigated legal proceedings against the State, alleging that the facility does not meet his basic needs, as required by the Reception Conditions Directive 2013. The proceedings were ongoing at the time of updating in May 2025.[38]

The Irish Refugee Council visited the site in September 2024, during which residents also reported an apparent lack of governance and oversight within the facility, particularly regarding the needs of the residents, with no central manager present on site. The isolated location of the facility, as well as lack of public transport links also meant that residents had difficulty accessing employment in addition to basic services.[39] The levels of stress, anxiety and frustration amongst residents were also apparent, with many residents reporting a significant deterioration in their mental health since arriving at the facility.[40] There were also reports of harassment of residents at the site by far right agitators, including verbal harassment and the flying of drones over the site in order to obtain aerial footage of same.[41]

Similar tented facilities were established at Newtown Mount Kennedy, Co. Wicklow and Athlone, Co. Westmeath throughout 2024, bringing to six the total number of tented accommodation facilities in the State. Approximately 812 international protection applicants were accommodated at these facilities as of 15 December 2024.[42]

Plans for an additional tented accommodation facility to be located at Thornton Hall, Co. Dublin were temporarily suspended on the 5th of November 2024, after the State indicated its intention not to contest judicial review proceedings instigated in respect of the proposed development. The proceedings were instigated by local residents who alleged that a Ministerial Order made in respect of the site ought not be allowed to stand due to a lack of adequate environmental screening having been conducted in advance of establishment of the facility.[43] Subsequently, on the 18th of November 2024, it was reported that a revised Ministerial Order would be issued ‘within weeks’, however, development of the site remained suspended at the time of updating.[44] The proceedings followed several months of disruptive protests at the site by locals who objected to the development.[45]

As of February 2025, there were 669 international protection applicants, all single males, living across the six centres.[46]

In June 2021, 1,360 protection applicants, 174 of whom were children, were housed in emergency accommodation.[47] In January 2023, 11,414 individuals were housed across 79 emergency centres.[48] By February 2024, 18, 702 individuals were residing across 216 centres.[49] As of February 2025, this figure had increased to 24, 975 individuals across 265 centres.[50]

The living conditions in these emergency accommodation locations are clearly unsuitable for the needs of protection applicants and fail to fulfil IPAS’s obligations under the EU recast Reception Conditions Directive (see Conditions in reception facilities).

Emergency Reception and Orientation Centres (EROC)

Emergency Reception and Orientation Centres (EROC) were specifically designed for the accommodation of persons arriving in Ireland through relocation and resettlement.[51] There are three EROC located in Waterford, Roscommon, and Meath. As of 31 December 2021, there was a total contracted capacity of 545 places across three EROC centres and 430 individuals resided in the three centres.[52] As of 31 December 2022, there was a contracted capacity of 545 places across three EROC centres and 430 individuals resided in the three centres.[53] As of March 2024, there was a total contracted capacity of 545 places across three EROC centres and 447 individuals resided in the three centres.[54] As of April 2025, there was a total contracted capacity of 525 beds across 3 centres and 465 individuals lived in the three centres.[55]

Capacity and occupancy of EROC
2022[56] 2023[57] 2024
Centre Capacity Occupancy Capacity Occupancy Capacity Occupancy
Waterford (Clonea) 125 109 125 110 125 88
Roscommon (Ballaghaderreen) 220 198 220 151 200 181
Meath (Mosney) 200 182 200 186 200 196
Total 545 489 545 447 525 465

 

 

 

[1] Ombudsman, The Ombudsman & Direct Provision: Update for 2019, April 2019, available: here.

[2] Minister for Justice Helen McEntee, Response to Parliamentary question No 582, 15th September 2020, available: here.

[3] Minister for Children, Equality, Disability, Integration and Youth Roderic O’Gorman, Response to Parliamentary Question No 1125, 19 January 2022, available: here.

[4] IPAS, DCEDIY IPAS – Weekly Stats, 29 January 2022, available: here.

[5] IPAS, ‘IPAS Statistics Weekly Report’, 4 February 2024, available: here.

[6] IPAS, ‘IPAS Statistics Weekly Report’, 2 February 2024, available: here.

[7] Information provided by the Irish Refugee Council’s Information and Advoacy Service, January 2023.

[8] The Journal, ‘How arson attacks on properties linked to asylum seekers have escalated over the last six years’, 16 July 2024, available: here.

[9]  Information provided by IPAS, January 2022

[10] ibid.

[11] IPAS, DCEDIY IPAS – Weekly Stats, 29 January 2022, available: here.

[12] IPAS, ‘IPAS Statistics Weekly Report’, 4 February 2024, available: here.

[13] IPAS, ‘IPAS Statistics Weekly Report’, 2 February 2025, available: here.

[14] Minister for Children, Equality, Disability, Integration and Youth, Response to Parliamentary Question No.405, 7 December 2021, available: here.

[15] IPAS, DCEDIY IPAS – Weekly Stats, January 29, 2023, available: here.

[16] IPAS, ‘IPAS Statistics Weekly Report’, 4 February 2024, available: here.

[17] IPAS, ‘IPAS Statistics Weekly Report’, 2 February 2025, available: here.

[18] Ombudsman, The Ombudsman & Direct Provision: Update for 2019, April 2020, available: here.

[19] IPAS, March 2023.

[20] ibid.

[21] Minister for Chidlren, Equality, Disability, Integraation and Youth Roderic O’Gorman, Response to Parliamentary question no 191, 14 December 2022, available: here.

[22] IPAS, ‘IPAS Statistics Weekly Report’, 4 February 2024, available: here.

[23] IPAS, ‘IPAS Statistics Weekly Report’, 2 February 2025, available: here.

[24] Minister for Children, Equality, Disability, Integration and Youth Roderic O’Gorman, Response to Parliamentary question nos 469, 470, 2 February 2021, available: here.

[25] Houses of the Oireachtas and Joint Committee on Justice and Equality, Report on Direct Provision and the International Protection Application Process, December 2019, available: here.

[26] Department of Justice and Equality, Spending Review on Direct Provision, 15 August 2019, available: here.

[27] Minister for Children, Equality, Disability, Integration and Youth Roderic O’Gorman, Response to Parliamentary Question No 107, 7 October 2021, available: here.

[28] Minister for Children, Equality, Disability, Integration and Youth Roderic O’Gorman, Response to Parliamentary Question No 1361, 26th July 2022, available: here.

[29] ibid.

[30] HIQA, ‘International Protection Accommodation’, January 2024, available: here.

[31] ibid.

[32] Breakingnews.ie, ‘Non-compliance with food and protection found in some direct provision centres – HIQA, 27 November 2024, available: here.

[33] ibid.

[34] ibid.

[35] IPAS, ‘IPAS Statistics Weekly Report’, 4 February 2024, available: here.

[36] Irish Times, ‘Hotels in the east being used as temporary direct provision centres’, 19 November 2018, available: here.

[37] Information provided by Iirsh Refugee Council Information and Advocacy Service, January 2025.

[38] Irish Examiner, ‘High Court hears of challenges against using tents to accommodate asylum seekers’, 26 July 2024, available: here.

[39] Information provided by Irish Refugee Council Information and Advocacy Service, January 2025.

[40] ibid.

[41] Dublin Inquirer,’ At Crooksling’s asylum shelter, harassment on the ground and drones in the sky’, 11 September 2024, available: here.

[42] International Protection Accommodation Service, ‘IPAS Weekly Accommodation and Arrival Statistics – 15th December 2024’, 15 December 2024, available: here.

[43] Irish Examiner, ‘Thornton Hall plan to house 1,000 asylum seekers thrown into doubt’, 5 November 2024, available: here.

[44] Irish Times, ‘‘New Ministerial Order to be made in weeks’, says Dept’, 18 November 2024, available: here.

[45] Breakingnews.ie, ‘Thornton Hall protestor recorded making clear threat to security on site, court told’, 12 August 2024, available: here.

[46] IPAS, ‘IPAS Weekly Accommodation and Arrivals Statistics’, 5 February 2025, available: here.

[47] Irish Times, Department to close 24 accommodation centres for asylum seekers, 8 June 2021, available: here.

[48] IPAS, DCEDIY IPAS – Weekly Stats, 29 January 2022, available: here.

[49] IPAS, ‘IPAS Statistics Weekly Report’, 4 February 2024, available: here.

[50] IPAS, ‘IPAS Weekly Accommodation and Arrivals Statistics’, 2 February 2025, available: here.

[51] INIS, ‘Ministers Flanagan and Stanton welcome Syrian refugee families to Ireland’, 27 December 2018, available: here.

[52] Minister for Children and Youth Affairs Roderic O’ Gorman, Reply to Parliamentary Question No 516, 15 February 2022, available: here.

[53] Minister for Children and Youth Affairs Roderic O’Gorman, Reply to Parliamentary Question No 152, 26 April 2023, available: here.

[54] Minister for Children, Equality, Disability, Integration and Youth, Response to Parliamnetary Question No 1081, 20 March 2023, available: here.

[55] Minister for Children, Equality, Disability, Integration and Youth, Response to Parliamentary Question No 240, 9 April 2025, available: here.

[56] Minister for Children and Youth Affairs Roderic O’Gorman, Reply to Parliamentary Question No 152, 26 April 2023, available: here.

[57] Minister for Children, Equality, Disability, Integration and Youth, Response to Parliamnetary Question No 1081, 20 March 2023, available: here.

Table of contents

  • Statistics
  • Overview of the legal framework
  • Overview of the main changes since the previous report update
  • Asylum Procedure
  • Reception Conditions
  • Detention of Asylum Seekers
  • Content of International Protection
  • ANNEX – Transposition of the CEAS in national legislation