Millions of Europeans live in cold homes, even though housing is a fundamental social right. More than 41 million people in the European Union cannot afford to keep their residences adequately warm, which amounts to 9.2% of the population, according to Eurostat. Notably, roughly two-thirds of those experiencing fuel poverty reside in the EU’s four largest economies.
Living in a chilly environment is not only uncomfortable but can pose serious health risks. Research shows that cold conditions can raise the likelihood of strokes and respiratory infections, and can also lead to more accidents due to diminished dexterity.
Fuel poverty rates differ widely across countries. At first glance, the percentages may seem modest, but when translated into absolute numbers, the scale of the issue becomes clear.
Using population data as of January 1, 2024, Euronews Business estimated how many people are affected by this form of poverty. In the EU, the share of those unable to heat their homes ranges from 2.7% in Finland to 19% in Bulgaria and Greece.
When including EU candidate countries and EFTA members, the range expands from 0.7% in Switzerland to 33.8% in Albania, with North Macedonia also standing out at 30.7%.
Above 10% are Lithuania, Spain, Portugal, Turkey, Cyprus, Montenegro, France, and Romania. In contrast, Italy and Germany fall below the EU average. The United Kingdom isn’t fully comparable because its latest data dates from 2018, when the rate stood at 5%.
Turkey, Spain, and France have the highest numbers in this broader set of 36 countries. Turkey alone accounted for 12.9 million people unable to keep their homes warm in 2024, a figure that underscores a significant burden despite some favorable energy pricing indicators.
As of mid-2025, Turkey boasted some of the lowest natural gas prices in both euro terms and purchasing power standards (PPS), and it also enjoyed the cheapest electricity in euro terms, with third-cheapest PPS. This juxtaposition highlights that low energy costs do not automatically shield a population from fuel poverty.
In Spain, 8.5 million people and in France 8.1 million people could not heat their homes adequately. Germany and Italy reported 5.3 million and 5.1 million affected, respectively.
What causes energy poverty?
Fuel poverty occurs when a household must cut back on energy use to a level that harms the occupants’ health and well-being, according to the European Commission. Three main drivers underpin this issue:
- A high share of household expenditure devoted to energy
- Low income
- Poor energy performance of buildings and appliances
The Commission notes that the COVID-19 crisis, followed by a spike in energy prices and Russia’s invasion of Ukraine in February 2022, worsened conditions for many EU citizens. The proportion of people unable to heat their homes has generally declined since 2011, hitting its lowest points in 2019 and 2021, before rising again and then dipping in the most recent year.
Officials attribute this trend to multiple factors, including reduced gas and electricity retail prices, the rollout of energy efficiency improvements across EU countries, and a broader awareness of energy poverty and those affected.
A recent Euronews Business analysis highlights electricity and natural gas prices across Europe, identifying the most expensive and least expensive countries in both euro terms and PPS.
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