European Commission proposes housing law as 19% of Zagreb flats lie empty
Proposal aims to give member states legal certainty to boost housing supply and restrict empty or short‑term tourist use of homes.
The European Commission on 9 September 2026 proposed a new law on affordable housing intended to give national, regional and local authorities clearer legal footing to adopt measures that increase the supply and accessibility of homes across the EU.
Concrete figures from cities and islands underline the problem
As part of its impact assessment the Commission highlighted that in Zagreb 19% of apartments stand empty. In Madrid, roughly 40 of every 100 long‑term rental units are instead offered for short‑term stays. On Malta, the Commission reports that more than 60% of units marketed for short‑term rental are owned by people who possess two or more rental apartments.
The proposal notes that shortages and high housing costs are not uniform across the Union: they are concentrated in large cities, on islands and in tourist destinations where a significant share of residential stock is not used for permanent residence. That mismatch, the Commission says, creates extra upward pressure on prices and reduces housing availability for year‑round residents.
The Commission also warns about wider economic consequences: high housing costs impair young people’s ability to live independently, reduce labour mobility and can restrict educational opportunities for households affected by housing stress.
Some member states have already introduced measures — including limits on short‑term rentals and bans on holding apartments empty — but several of those policies have faced legal challenges over their compatibility with EU rules on the freedom to provide services and private property rights, the Commission says.
Dan Jørgensen, the EU Commissioner for Energy and Housing, pointed out that certain countries adopted bans on keeping flats vacant to push owners to occupy or let them. The Commission’s new law aims to provide clearer legal certainty so governments can implement similar measures without immediate legal uncertainty.
Photo: press material from the event
