In the face of rising inequality, housing difficulties and the lasting effects of successive crises, European cities are sending a clear message: to tackle poverty, action must be taken where it is most visible and most tangible.
This week, a group of local leaders met with European Commission’s Executive Vice-President for Social Rights and Skills, Quality Jobs and Preparedness Roxana Mînzatu to emphasise that Europe’s fight against poverty will depend on how effectively EU institutions and local governments work together.
“We want to bring the voice of regions and cities to our social policies,” Mînzatu told participants. “You know best what is needed. Whether it is funding, legislative tools or common ambitions, you have tested, implemented and learned what works and what doesn’t. Your experience is essential for shaping EU policies that truly work for citizens and local communities.”
At the heart of the conversation lies the Eurocities paper calling for an integrated EU anti-poverty strategy, one that places cities not at the margins, but at the centre of the solution.
Poverty is increasingly an urban reality
Poverty in Europe is no longer a distant or abstract issue. It is concentrated, visible, and deeply rooted in urban life. According to recent Eurostat data, more than one in five EU residents were at risk of poverty or social exclusion in 2024.
“Cities are home to both opportunities and challenges,” said André Sobczak, Secretary General of Eurocities. On the one hand, they offer employment, education, and services. On the other, they bring with them rising housing costs, expensive energy, and growing inequalities.
Even within cities themselves, poverty is rarely evenly distributed. It often concentrates in neighbourhoods where residents face overlapping disadvantages: low incomes, limited access to services and fewer opportunities.
Local leaders at the meeting highlighted how the cost-of-living crisis is intensifying these pressures. Rising costs for housing, food, healthcare and education are stretching household budgets across Europe. “Us at the local level, we face poverty and extreme poverty in our cities, and we are demanding support and solutions from the EU level,” said
Homelessness in particular remains overwhelmingly a challenge, becoming increasingly visible across Europe in streets, shelters and temporary accommodation systems that don’t offer sustainable solutions.
Why cities are essential actors
Cities are often the first to feel the impact of poverty and are expected to provide a response. Their proximity to residents allows them to understand needs in a way that national or European institutions cannot fully replicate.
We want to bring the voice of regions and cities to our social policies
“Cities are not just implementers of policies — they are co-creators of social innovation, and key partners in ensuring that European strategies translate into real and lasting impact on the ground,” said Sonia Fuertes, Commissioner for Social Action in Barcelona.
Across Europe, cities are already developing tailored responses to poverty and social exclusion.
In Rotterdam, for example, the municipality uses a neighbourhood-based approach that prioritises visibility and trust. Civil servants actively engage with residents in communities, opening local offices where people can receive guidance and support.
“We follow a neighbourhood-oriented approach to fight poverty: be visible, be seen, be active in the community and have conversations with people,” explained Abigail Norville, Alderman for Poverty Reduction, Debt Assistance, Language and Benefits in Rotterdam.
This local proximity also helps cities identify problems earlier. The Dutch city works with housing corporations and energy suppliers to detect early signs of financial distress, allowing authorities to intervene before debts escalate.
A new approach to tackling poverty
European cities are calling for a fundamental shift in the European Union’s approach to poverty. Rather than treating it as an isolated issue, they advocate for a people-centred, intersectional, and multidimensional strategy.
Poverty is not just a matter of income. It is about access: to housing, healthcare, education, transportation, and opportunities as well as the take-up of those services. It is shaped by discrimination, gender, migration status, and disability. And it evolves over time, often becoming entrenched across generations.
To respond effectively, Eurocities calls for a EU anti-poverty strategy structured around three priorities: preventing poverty before it occurs, supporting pathways out of poverty, and addressing its long-term consequences.
Prevention: stopping poverty before it starts
The top priority is prevention, which is arguably the most cost-effective approach with the greatest social impact.
Across Europe, more and more people are at risk of falling into poverty despite having a job. Rising housing and energy costs are putting significant pressure on household budgets, while economic transitions linked to climate policy risk exacerbating inequalities if not managed carefully.
“If we truly want to leave no one behind, we must start by understanding the people we want to support — their reality, challenges and lives,” said Lieve De Bosscher, Director of Childcare Services in the City of Ghent.
Ghent has developed programmes that bring social services directly into everyday environments where families already are. Through its “Children First” approach, social workers are placed in schools, childcare centres and community spaces, making support more accessible and less stigmatising.
The initiative was developed after the city discovered that a large share of families entitled to social support were not accessing it. According to local data, nearly 60% of eligible households were not claiming the services available to them, a phenomenon known as non-take-up.
By placing trained social workers in schools and nurseries, the city makes it easier for families to seek help informally and receive guidance before problems escalate. Staff can help parents navigate administrative procedures, connect them with financial assistance or housing support, and coordinate with other public services when needed.
In Barcelona, the municipality has adopted an ambitious strategy to tackle child poverty through coordinated policies across education, housing and social services. “Our ambition is to create a comprehensive city model that reduces child poverty and breaks the cycle of exclusion,” Fuertes explained.
In Athens, local authorities have created a dedicated energy poverty alleviation office operating as a one-stop shop, where households can receive personalised advice and support.
“We approach energy poverty not only as an energy issue but as a social problem,” said Elissaios Sarmas CEO of Develop Athens. “Cities are the first point of contact for households facing these challenges.”
The office brings together several forms of assistance in a single place. Families can receive tailored energy advice based on their household situation, get help applying for national subsidies, and access guidance on improving the energy efficiency of their homes. The service also connects residents with social services and works with private companies to ensure that support translates into concrete benefits, such as reduced bills or renovation assistance.
The initiative is integrated into the city’s wider social services, allowing vulnerable residents to receive coordinated support rather than navigating multiple administrative systems. Athens has also taken additional measures, including exempting households below the poverty threshold from municipal charges.
Pathways out of poverty: from exclusion to inclusion
For those already experiencing poverty, the challenge is not merely to provide support, but to create real and sustainable pathways out of it.
This requires addressing some of the most visible and pressing issues, such as homelessness. Cities are increasingly adopting long-term, housing-centred approaches that prioritise stability and dignity.
Dublin has adopted a structured approach based on prevention, protection and progression. The city has expanded its Housing First programme, which prioritises stable housing for people experiencing homelessness as a baseline for addressing other needs.
“We want to move from managing homelessness to eradicating it,” said Colm O’Rourke, Councillor from Dublin City Council.
Rather than requiring people to resolve these issues before accessing housing, the programme provides permanent housing immediately and surrounds individuals with tailored support services, including health care, addiction services and social assistance.
The results have been significant. According to city representatives, the programme has achieved a housing retention rate of around 87%, helping people maintain stable living conditions and reducing reliance on emergency shelters and other crisis services.
If we truly want to leave no one behind, we must start by understanding the people we want to support — their reality, challenges and lives
Dublin’s strategy also recognises that homelessness often extends beyond those counted in official statistics. Many people live in insecure or temporary arrangements that remain largely invisible in data, particularly women, families with children, young people, LGBTQIA+ and migrants.
City officials emphasised the need for improved identification systems and more coordinated responses across housing, employment and health policies. Addressing the root causes of homelessness, they argue, requires tackling structural challenges such as housing supply, complex social needs and access to adequate funding.
Addressing the long-term consequences of poverty
Even when people move out of poverty, its effects can linger for years.
Health inequalities, limited access to services and environmental factors such as poor housing conditions all contribute to long-term disadvantage.
In some cities, these challenges are rooted in deep historical and economic transformations. In Łódź, for example, the collapse of the textile industry after the end of communism left a lasting social and economic legacy. Many people had low levels of education and found it very difficult to find new employment.
“We are working to address these long-term impacts through one of Poland’s largest urban revitalisation programmes,” explained Hanna Zdanowska, Mayor of Łódź. The initiative combines the renovation of historic municipal housing with investments in public spaces and social services, aiming to improve living conditions in neighbourhoods that were heavily affected by industrial decline.
Cities also emphasise the importance of strengthening family and social support systems to prevent long-term disadvantage from taking root. In Tallinn, local authorities are expanding services that support children and families, including free childcare and mental health programmes for young people.
“We must support families not only when they are already in need, but also when they may face difficulties in the future,” said Kaisa Vetemaa, Head of Tallinn Child and Family Welfare Department.
These preventive policies recognise that poverty is rarely caused by a single factor. Instead, it often results from the interaction of multiple challenges, including economic insecurity, housing conditions and access to social services.
In Zagreb, local authorities have taken a similarly comprehensive approach, expanding access to childcare, education and mobility services. The city has introduced free public transport for children, seniors and people with disabilities, while increasing support for inclusive education and school meal programmes.
“Social justice is a key value in Zagreb, and our policies must follow a long, systemic and multifactorial approach,” said Mayor Tomislav Tomašević.
What cities are asking from Europe
While cities are already taking action, local leaders stressed that they cannot address poverty alone. One of their main demands is greater involvement in the design and implementation of EU policies.
We want to move from managing homelessness to eradicating it
“There is no strong Europe without a social Europe,” said Polet, emphasising the need for stronger European action to address poverty and inequality.
Cities are also calling for better alignment between EU funding instruments and local needs. Many local governments argue that current funding streams remain fragmented and difficult to access.
They want the next EU budget, the Multiannual Financial Framework, to provide clearer and more accessible support for local anti-poverty initiatives.
From dialogue to action
The meeting with Executive Vice-President Mînzatu comes at a critical moment. As Europe prepares its next policy and budget cycles, decisions made now will shape the Union’s ability to respond to poverty in the years ahead. Cities are making it clear that they are ready to lead, but they cannot do it alone.
Their message is both simple and urgent: if Europe is serious about reducing poverty, it must work with the level of government closest to its citizens.
Because ultimately, Europe’s anti-poverty strategy will not be judged by declarations made in Brussels, but by the lives improved in its cities.
