




































 Humanities and Social Science Research; Vol. 1, No. 2; 2018 
ISSN 2576-3024   E-ISSN 2576-3032 

https://doi.org/10.30560/hssr.v1n2p23 

 23 Published by IDEAS SPREAD 
 

The Phenomenon of Homelessness during the Greek Economic Crisis 
2009-2018 

Symeon N. Mavridis1 & Savvoula I. Mouratidou1 

1 Department of Social Administration and Political Science, Democritus University of Thrace, Komotini, Greece 
Correspondence: Symeon N. Mavridis, Department of Social Administration and Political Science, Panagi 
Tsaldari 1, PC 69100, Komotini, Greece. E-mail: s.mavridis@hotmail.com 
 
Received: August 22, 2018; Accepted: October 11, 2018; Published: October 29, 2018 
 
Abstract 
This research focuses on the phenomenon of homelessness in Greece, especially during the deep economic crisis 
that has lasted from 2009 until this day. Unfortunately, in large part, homelessness also affects welfare policy, as 
well as social cohesion and healthcare. The significance of the study lies in the fact that there are no official data 
from governmental institutions concerning the number of homeless people across the country. For this reason, this 
study attempts to collect all available data in order to present the evolution of the phenomenon of homelessness 
from 2009 to present. Homelessness is examined in relation to poverty and other factors of deprivation. In addition, 
countermeasures addressing homelessness, adopted by both public and private organizations, are also examined. 
Public institutions usually provide small pensions, only for seniors over sixty-seven years old, meal cards, free 
soup kitchens and several shelters. At the same time, a large number of private organizations, such as NGOs, 
provide free accommodation, meals, and showers. Unfortunately, the rising number of homeless people during the 
ongoing socioeconomic crisis and the lack of communication among institutions deteriorate the problem. On these 
grounds, this research analyzes the phenomenon of homelessness in Greece in order to provide the appropriate 
solutions for its containment. 
Keywords: unemployment, homelessness, housing, poverty 
1. Introduction 
Greece has been facing serious financial problems since 2009. The general turmoil in the global markets has led 
to an unprecedented local debt crisis lasting until this day. According to the Eurostat data in 2009 Greece’s debt-
to-GDP ratio had reached 126.7%, which meant that the general government gross debt had amounted to €301 
billion. In 2016 the Greek debt reached 180.8% of GDP, namely over €315 billion. Despite the fact that three 
International Economic Programs, as well as massive reforms, have been introduced by the Greek governments, 
the country still fights for its economic and financial stability (Mavridis 2018:1). Unfortunately, the impact of the 
crisis was devastating in real life. The welfare reforms brought about major cuts in pensions and wages, thus, 
deepening poverty (Petmesidou 2011:4-5, 2012:8-10, 2013a:2, 2013b:7-10, 2014:16). In reality, social conditions 
have significantly deteriorated resulting into homelessness, poverty, migration, unemployment, suicides and 
generally speaking social exclusion (Mavridis 2018:1). “Growing unemployment and falling income have 
increased vulnerability to homelessness as more people are unable to meet housing costs. Austerity measures and 
cuts have had a major impact on service capacity at a time of growing demand” (FEANTSA 2012:25). The rise of 
unemployment affects both homelessness and family relationships (Fitzpatrick et al. 2012:11, 2017:2). In Greece, 
poor households spend 75% of their disposable income on housing (FEANTSA and the Foundation Abbé Pierre 
2018:53). Data is impressive. “More than 40% of the population and almost all poor households (91.9%) were 
overburdened by housing costs in 2016, i.e. an increase of 380% between 2010 and 2016 for non-poor households” 
(FEANTSA and the Foundation Abbé Pierre 2018:55). 
What is more, since 2016 EU has closed the borders to immigrants through Greece. The closing of Greek borders 
has caused an additional negative impact on general homelessness. On 30 November 2016, 32,535 people were 
registered in the Greek refugee camps (FEANTSA and the Foundation Abbé Pierre 2017:16). According to the 
Ministry of Digital Policy, Telecommunications and Media on 1 January 2017, 62,784 refugees were registered in 
organized camps and on 30 July 2017, 62,407. 
 
 



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2. Methodology 
The research uses secondary data, in particular previously written data, reports, articles and other relevant literature 
sources such as books and the Internet. Precious statistical data was drawn from Eurostat, OECD, the Ministry of 
Justice and the Court of First Instance of Thessaloniki. Also, data from five older surveys on Greek homelessness 
were compared. The former surveys were conducted by the City of Athens Reception and Solidarity Center for 
the Homeless (KYADA), NGO Klimaka and Panteion University of Athens with the collaboration of the Ministry 
of Labour, Social Insurance and Social Solidarity. It should be noted at this point that there is no official 
information or published data from government agencies concerning the phenomenon of homelessness. 
Furthermore, it should be taken under consideration that there is both visible and invisible homelessness since 
many vulnerable people, who are at obvious risk of homelessness, are accommodated by friends and relatives. 
Limitations are related firstly to the lack of a consistent definition of homelessness and there is also a difficulty in 
measuring homelessness, specifically for those who are either temporarily accommodated by relatives and friends, 
invisible homeless people or people at risk of homelessness. 
3. International and Constitutional Protection of Housing 
Homelessness is a dangerous situation for society. It promotes poverty and social exclusion. In legal theory 
adequate housing is traditionally regarded as a social right. In the past the UNO tried to mitigate the global 
repercussions of homelessness. First, in 1948 the Universal Declaration of Human Rights (UDHR) defined in 
article 25 that: “Everyone has the right to a standard of living adequate for the health and well-being of himself 
and of his family, including food, clothing, housing and medical care and necessary social services, and the right 
to security in the event of unemployment, sickness, disability, widowhood, old age or other lack of livelihood in 
circumstances beyond his control”. Moreover, in 1966 the United Nations General Assembly adopted 
the International Covenant on Economic, Social and Cultural Rights (ICESCR). ΙCESCR is a multilateral treaty 
which defines in article 11, paragraph 1 that: “The States Parties to the present Covenant recognize the right of 
everyone to an adequate standard of living for himself and his family, including adequate food, clothing and 
housing, and to the continuous improvement of living conditions. The States Parties will take appropriate steps to 
ensure the realization of this right, recognizing to this effect the essential importance of international co-operation 
based on free consent”. In the European Union, the EU Charter of Fundamental Rights defines in article 34 (Social 
security and social assistance), paragraph 3 that: “In order to combat social exclusion and poverty, the Union 
recognizes and respects the right to social and housing assistance so as to ensure a decent existence for all those 
who lack sufficient resources, in accordance with the rules laid down by Union law and national laws and 
practices”. 
Furthermore, with regard to the Greek Constitution with its amendments (1975-1986/2001/2008), the right to 
housing is clearly guaranteed in article 21, paragraph 4. In particular, constitutional article 21, paragraph 4 
stipulates that: “The acquisition of dwelling for those that deprive it or those inadequately sheltered is subject to 
special care by the State”. Also, the Greek legislation protects to an extent main residence (first residence) from 
auctions by Law 3869/2010 and its amendment (L. 4336/2015 and L. 4346/2015). The protection covers only 
natural persons who are not traders/merchants. “Some 60,000 households were placed under the protection of this 
law between 2011 and 2013” (FEANTSA and the Foundation Abbé Pierre 2017:85). Besides, to some extent, both 
natural and legal persons, either with commercial status or not, are protected by Law 4469/2017 which establishes 
a permanent out-of-court debt settlement mechanism. 
In addition, Law 4320/2015 on “measures to deal with the humanitarian crisis” mentioned that vulnerable 
households facing extreme poverty were exempt from paying electricity up to 1,200 kwh per bill (article 1). Also, 
this Law’s article 2 granted rental allowance to up to 30,000 people, individuals or families, living in extreme 
poverty conditions. Every month, an individual could receive up to €70 and families up to €220 in benefits. 
Benefits were directly paid to the home owner (article 2) while article 3 concerned food support (food cards). In 
mid 2016 the provisions of Law 4320/2015 were practically replaced by Law 4389/2016 (Official Government 
Gazette Α΄ 94/27.05.2016, especially as to article 235) on the Social Solidarity Income (in Greek KEA). The SSI 
mainly provides at least €200 per month to every individual with very low or zero income facing extreme poverty. 
Half of the amount is mandatorily given via prepaid bank cards. As of 11 July 2018, 4,871 homeless people 
received the SSI. 
Moreover, according to Law 4387/2016 (art. 93), the state provides a special pension of €360 to uninsured seniors 
over 67 years old (social solidarity allowance). Finally, according to Ministerial Decisions (Γ3/οικ2615/22-05-
1985, Official Government Gazette 329 B΄/29-05-1985 and Γ3/οικ2435/08-07-1987, Official Government Gazette 
435 Β΄/19-08-1987) based on Legislative Decree 162/1973 (on measures for the protection of the elderly and 



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chronically ill), homeless people over 65, uninsured and poor, single or married, may only receive a rental 
allowance. If married at least one of them must be over 65. Of course, the fact that aid is linked to a specific age 
threshold causes problems since the homeless less than 65 years old are de facto excluded from financial support. 
Finally, according to Law 4472/2017 (Official Government Gazette 74 A΄/19-05-2017) the state provides a special 
rental allowance to up to 600,000 households paying rent or burdened with the cost of servicing a first home 
mortgage loan (art. 3). 
4. Who is Considered Homeless? 
Who is considered as homeless? There are various definitions of homelessness (Eddowes and Hranitz 1989, 
Chamberlain and Mackenzie 1992, Roth et al. 1992, Jencks 1994, Edgar et al. 2004, Wyly and Hammel 2005, 
Toro 2007, Minnery and Greenhalgh 2007, Ravenhil 2008, McNaughton 2008, Murphy and Tobin 2011). 
“Homelessness is defined as including anyone whose night residence is either in a shelter, on the street or in 
another public place” (Eddowes and Hranitz 1989:197). Jencks (1994:4) supported that “the homeless can be 
divided into two groups: those who sleep in free shelters (the ‘shelter homeless’) and those who sleep in places 
not intended for human habitation, such as bus stations, subway trains, automobiles, doorways, and abandoned 
buildings” the ‘street homeless’. According to Murphy and Tobin (2011:9) “homelessness is the absence of a home 
or lack of a stable, dependable, source of housing”. The United Nations Economic Commission for Europe (2009) 
classifies homeless people into two categories: a) primary homelessness or rooflessness (people living on the 
streets without a shelter) and b) secondary homelessness (people with no place of usual residence). 
According to Greek Law 4052/2012 (article 29, paragraphs 1 and 2): 
1. The homeless are recognized as a vulnerable social group, which is provided for by social protection. The 
homeless are defined as all persons legally residing in the country with no access, or with unsafe access to adequate, 
privately owned, rented or bestowed housing that meets the required specifications and has basic water services 
and electricity. 
2. The homeless include especially those who live on the street, in hostels, are hosted, out of necessity, temporarily 
in institutions or other closed structures as well as those living in inappropriate accommodation” (Theodorikakou 
et al., 2013, 204). 
Apart from the Greek legislation, in 2005 the European Federation of National Organizations Working with the 
Homeless (FEANTSA) launched a European Typology on Homelessness and Housing Exclusion (ETHOS). The 
ETHOS typology distinguishes four basic categories: Roofless, Houseless, Insecure and Inadequate (FEATSA 
2006:1, Stamatis 2012:5-6, Arapoglou et al. 2005:22). In a survey conducted by Arapoglou and Gounis in 2013-
2014 in Attica (Arapoglou and Gounis 2014) the data followed the ETHOS typology on homelessness. 
 

 
Figure 1. Homelessness in Attica 2014 based on ETHOS – European Typology on Homelessness and Housing 

Exclusion  

Source: Arapoglou and Gounis 2014, Arapoglou et al. 2015:25-27, authors’ editing 
 



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Table 1. Homelessness in Attica 2014 based on ETHOS – European Typology on Homelessness and Housing 
Exclusion 

Conceptual Category  Operation Category People 
ROOFLESS 1 People living rough 2,360 
HOUSELESS 3 People in accommodation for the homeless 15,436 
INSECURE 8 People living in insecure accommodation 25,700 
INADEQUATE 11 People living in temporary / non-standard structures 93,820-514,000

Source: Arapoglou and Gounis 2014, Arapoglou et al., 2015:25-27 

 
In 2015, in Attica province (including Athens) the number of homeless people according to the ETHOS typology 
was 500,000 (FEANTSA and Foundation Abbé Pierre 2018:98). 
5. Housing Problems in Europe 
In Europe it is estimated that there are approximately 4 million people who are homeless (Saltou 2016). 
“Homelessness, once considered a problem confined to Third World nations and to periods of war and economic 
depression, has recently emerged as a major social issue in most developed nations” (Toro 2007:461). The basic 
problem in Europe is that homelessness is not confronted as a serious problem. “In Europe there are very few 
strategic approaches to homelessness. In fact, homelessness is often not considered as worthy of a policy response 
in its own right and may be relegated to the periphery of both housing and social policy arenas” (Minnery and 
Greenhalgh 2007:650). As far as the world is concerned, the homeless are estimated at 100 million. Greece is not 
the only EU member confronting problems with the phenomenon of homelessness. In many countries people 
cannot afford the high costs of home maintenance and face the dangers of housing deprivation. 

 
Figure 2. Severe Housing Deprivation Rate in Europe % (Total) 

Source: Eurostat, authors’ editing 
 
Figure 2 shows that states from the former Eastern Bloc, such as Hungary, Romania, Latvia, Bulgaria, are 
significantly affected from housing deprivation. On the other hand, the abovementioned states have significantly 
progressed between 2008 and 2016. Mediterranean states, such as Greece, Italy and Portugal, are also vulnerable 
to housing deprivation but to a lesser extent. In 2006 6.3% of the population in Greece faced severe housing 
deprivation problems. The severe housing deprivation rate is the percentage of population living in a dwelling 
considered to be overcrowded, while also exhibiting at least one of the housing deprivation measures. Housing 
deprivation is a measure of poor amenities and is calculated by referring to those households with a leaking roof, 
no bath/shower and no indoor toilet, or a dwelling considered too dark. 
 



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Figure 3. Housing Cost Overburden Rate in Europe (Total in Percent) 

Source: Eurostat, authors’ editing 
 
Figure 3 shows that many citizens in Greece, amounting to 40.5% of the population in 2016 (the highest rate in 
Europe), face serious problems in affording housing costs. The housing cost overburden rate (%) is the percentage 
of the population living in a household where total housing costs (net of housing allowances) represent more than 
40% of the total disposable household income (net of housing allowances). 

 
Figure 4. Difficulties in keeping the dwelling warm 2010-2014 (except Germany) 

Source: OECD, authors’ editing 
 
Figure 4 depicts the percentage of households that cannot afford to keep their dwelling adequately warm, 
presenting the bottom quintile of the disposable income distribution. Figure 4 is related to Figure 2 with the 
exception of Bulgaria. Greece’s residents are the most affected by the economic crisis and mainly express inability 
to keep the dwelling warm. What is worse, although Bulgaria year after year has improved income and living 
conditions, Greece’s statistics have deteriorated between 2010 and 2014, especially for the bottom quintile of the 
population. Approximately, one in two people from the poorest categories of the Greek population (bottom quintile) 
cannot afford the costs of keeping their dwelling warm. Also, the phenomenon of homelessness, during 2010-2014, 
has deteriorated in almost all countries where special Economic Adjustment Programs were implemented such as 



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Greece (2010), Cyprus (2011), Spain (2012) and Ireland (2010), while in Portugal (2011) conditions have been 
critical. 
It is confirmed that some welfare regimes in Europe provide significant support to homeless citizens while others 
do not. The extent of homelessness depends on the support of each welfare regime. Specifically, in northern and 
richer states homelessness is dealt with better than in the Mediterranean States. Similarly, in the post socialist 
states the measures against homelessness are in large part inadequate (Busch-Geertsema et al. 2010:17, Fitzpatrick 
et al. 2012:12). 
6. Homeless in Greece  
6.1 Categories of Homeless People  
At the beginning of the 1990s, homelessness in Greece was related to foreigners, especially immigrants 
(Theodorikakou et al. 2013:205). Today, and especially after the adoption of the first Memorandum of 
Understanding between Greece and its creditors, the majority of homeless are Greeks (KYADA 2016, Panteion 
University and Ministry of Labour, Social Insurance and Social Solidarity 2018). 
Although homelessness has been traditionally related mostly to uneducated poor people, people with mental 
disorders, drug addicts, alcohol addicts, violent people, unhealthy people and people with family problems, the 
prolonged Greek economic crisis has brought additional features to homelessness. Specifically, apart from the 
traditional long-term model of the homeless which mainly consists of drug addicts, alcoholics, compulsive 
gamblers and people with mental disorders, a new category of homeless people emerged, called the ‘neo-homeless’ 
or ‘new homeless’. Neo-homeless are people who have been adversely affected by the economic crisis. Many of 
them were well educated or well-trained and simply lost their jobs (FEANTSA 2012:54, Theodorikakou et al. 
2013:206). “The ‘new’ homeless are characterized by higher levels of qualifications and work experience and do 
not have complex needs apart from not being able to meet housing costs” (FEANTSA 2012:32). During crisis the 
phenomenon of homelessness has changed because it has incorporated people who enjoyed a good standard of 
living in the past, such as freelancers and entrepreneurs). Moreover, except for the unlucky entrepreneurs, many 
‘new’ homeless are simply women and children (Busch-Geertsema et al. 2010:15-16, 55). “The ‘new homeless’ 
are defined as families, women, children, youth, seniors, and marginalized ethnic or migrant groups” (Minnery 
and Greenhalgh 2007:643). 
Also, in the last decade, both ‘visible’ and ‘invisible’ or ‘hidden’ homeless people increased in such levels which 
are unfamiliar to society (Fitzpatrick 2012:23, 2017:17). Hidden homelessness refers to people who try to find at 
first temporary accommodation through friends or family relatives (Fitzpatrick et al. 2012:82). The major problems 
which trigger homelessness are economic failures, poverty, high cost of living, housing market conditions, 
unemployment, and family breakdowns. 
6.2 Active Organizations against Homelessness 
The state, the official Orthodox Church, municipalities, regions, non-profit organizations (NPOs), private 
organizations such as non-governmental organizations (NGOs) as well as independent groups of individuals try to 
alleviate the problem of homelessness on a daily basis. Specifically, thousands of free meals are offered by many 
institutions on a daily basis, such as the Church of Greece, municipalities and NGOs. In 2016, only in the Region 
of Attica, at least 200 organizations were responsible for providing free meals. For instance, in 2017 NGO “We 
can” provided 20,000 meals on a daily basis (Mavridis 2018:9). Only in Athens the Reception and Solidarity 
Center for the Homeless (KYADA) provides 1,200 meals on a daily basis (Saltou 2016). Moreover, some private 
and public organizations provide free accommodation, night shelters or showers. Following the 2016 Ministerial 
Decision Δ23/οικ.19061-1457 (Official Government Gazette B΄ 1336 12.5.2016) there are only four official types 
of Homeless Shelters: a) Open Day Shelters for the Homeless, b) Dormitories, c) Transient Hospitality Hostels, 
and d) supportive apartments. The direct housing provision is very important. Larimer et al. (2009:1355) confirmed 
that direct housing of citizens, e.g. with alcohol addiction, reduces healthcare costs as well as probable legal costs 
(court costs, police involvement, etc.). According to the survey of Panteion University and the Ministry of Labour, 
Social Insurance and Social Solidarity (2018), the majority of homeless people use soup kitchens which provide 
free meals. 
6.3 The Homeless Population 
Data shows a steady rise in the number of homeless people from 2009 to 2018. It should be noted that the survey 
of the National Centre for Social Solidarity - NCSS (2009) excluded migrants and travelers (NCSS in FEANTSA 
and the Foundation Abbé Pierre 2017:16). Unfortunately, illegal immigrants cannot usually be registered for social 



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services and so are not identified in certain homelessness surveys based on access to such services (Minnery and 
Greenhalgh 2007:644). 
 
Table 2. The homeless in Greece, 2009-2018 

Year Homeless  Sources 
2009 7,720-11,000 NCSS (2009), FEANTSA and Foundation Abbé Pierre (2017:16), NGO Praxis in 

Void Network (2013) 
2010 17,000-20,000 Fondeville and Ward (2011:13-14), European Observatory on Homelessness in 

Zarafonitou (2012:9), FEANTSA, NGO Klimaka in Reuters (2011) 
2011 17,000-20,000 Fondeville and Ward (2011:13-14), FEANTSA, NGO Klimaka in Reuters (2011)
2012 20,000 FEANTSA (2012:25), Stamatis (2012:5, 11), NGO Klimaka 
2013 20,000 FEANTSA, NGO Praxis in Void Network (2013) 
2014 25,000 NGO Praxis (Mavridis 2018:9) 
2015 20,000 Homeless World Cup Foundation (more than 20,000) 
2016 40,000 Saltou (2016) 
2017 no data  
2018 40,000 DiEM25-GR (2018) 

 
Data in Table 2, as well as Figure 5, show that Greece has witnessed a serious rise in homelessness over the past 
years (FEANTSA 2012:21). In Greece, homelessness has increased especially in large urban centers 
(Theodorikakou et al. 2013:206). In 2018 the political party DiEM25 (Democracy in Europe Movement 2025) 
supports that there are over 40,000 homeless people. From 2009 to 2018 homeless people have doubled or even 
quadrupled. 
 
Table 3. The homeless in Athens, Attica, 2010-2018 

Year Homeless  Sources 
2010 9,000 European Observatory on Homelessness in Zarafonitou 2012:9 (Attica) 
2011 10,000 Mpoulia 2011 (Athens) 
2012 10,000-13,000 10,000 Klimaka (Athens), more than 11,000 NGO Praxis in Stamatis 2012:12 

(Athens), 13,000 NGO Praxis in the Daily Star Lebanon 2012 (Athens) 
2013 9,100 Arapoglou and Gounis 2015:2 (greater metropolitan area of Athens) 
2014 no data  
2015 17,000-20,000 17,000 FEANTSA 2017b (Attica), 20,000 Kottasova 2015 (Athens) 17,000 

FEANTSA and Foundation Abbé Pierre 2018:98 (Attica province) 
2016 9,000 FEANTSA and Foundation Abbé Pierre 2017:16 (Athens) 
2017 25,000 Migreurope 2017 (Athens) 

 
Table 3 depicts the tremendous rise in homelessness in the greater metropolitan area of Athens. In 2017 the 
observatory Migreurope counts homeless population at 25,000. Especially in Athens, according to FEANTSA and 
the Foundation Abbé Pierre (2017:16), “the findings show that 71% of the Athens homeless were forced to live on 
the streets in the past five years”, which corresponds to 1.4% of the Athens population. In 2017, in Athens, “1 in 
70 people are now homeless, most becoming homeless since 2011” (FEANTSA 2017a). In the near future the issue 
of homelessness will probably become further deteriorated (Mavridis 2018:9). 
6.4 Major Causes of the Phenomenon of Homelessness 
From a legal point of view the phenomenon of homelessness is on the rise because social rights cannot be judicially 
enforced. This means that due to a weakness of putting social rights in force the right to housing is practically 
ineffective (Theodorikakou et al. 2013:203-204). In other words, the homeless cannot make the state provide 
shelter. Apart from that, in Greece the overall housing policy further deteriorated after the abolition of the former 
main housing funding body, the Worker’s Housing Organization (in Greek OEK) in 2012, which had been 
established in 1954! 
Moreover, during the Greek crisis the property costs for both owned and rented properties further augmented. In 
order to collect more revenues, the state introduced new taxes on property such as “ENFIA” which means “Unified 



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Property Ownership Tax”. This practically means that according to the Independent Authority for Public Revenue 
almost one out of two taxpayers owes to tax authorities, namely 4,068,857 taxpayers in December 2017 (Kouros 
2018). 

 
Figure 5. Tenure structure of low-income households with difficulty in keeping the dwelling warm (2014) 

Source: OECD, authors’ editing 
 
As emphasized in Figure 5, in Greece 60.25% of the people, who have their own private property, find it difficult 
to keep their dwelling warm. The calculations are based on the European Survey on Income and Living Conditions 
(EU SILC 2014) except Germany. 
Moreover, the rise in property taxes has led to a tremendous increase in waivers of succession (Figure 6), namely 
statements renouncing inheritance (there are only estimations for 2017). 

  

Figure 6. Waiver of succession in Greece (2019-2017) 
Source: Ministry of Justice, Transparency and Human Rights 2017 



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Moreover, apart from the tremendous rise in inheritance renunciations, the state increasingly proceeds to 
enforcement measures against taxpayers who cannot pay private debts to tax authorities. These measures have 
deteriorated the phenomenon of homelessness. 
 
Table 4. Private debt to tax authorities/state, 2009–2016 (Independent Authority for Public Revenue) 

Year 2014 2015 2016 2017 
Debts 75 bil. € 86 bil. €  95 bil. € 102 bil. € 
Taxpayers who owe to tax authorities/state 3,939,353 4,305,153 4,146,483 4,068,857 
Enforcement measures against taxpayers: 
e.g., seizures, auctions 

no data 695,074 839,056 1,050,077 

Source: Mavridis 2018:10 
 
Table 4 presents the dire situation in Greece. In 2017, the debt to tax agencies was €102 billion. Furthermore, in 
2017 the total number of taxpayers owing to tax authorities reached 4,068,857 on many (1,050,077) of whom 
enforcement measures by the state such as seizures and auctions were imposed. This practically means that almost 
one out of two taxpayers owes to tax authorities. In addition, there are serious problems with private debt, the total 
bank debt (red loans) and the debt of social security organizations (Mavridis 2018:10). In addition, from 2009 and 
onwards several households find it difficult to pay off home loans due to regressive reductions in salaries and 
pensions (Louzis et al. 2011: 22-24, Matsaganis 2013:16). 

 
Figure 7. Trends in evictions in Greece, 2010-2013 - Estimations of eviction applications to courts for private 

rented housing 
Source: OECD 2017, authors’ editing 
 
Figure 7 shows that in the beginning of the crisis evictions increased. Paradoxically, after 2012 there was clear 
reduction in evictions. 
Both Figure 7 and Table 5 illustrate a paradox. Although the number of homeless people has steadily increased, 
the number of evictions as well as landlord/tenant disputes has not. A possible answer is that a moratorium has 
been issued by banks and Greek governments protecting a number of debtors with mortgage arrears (Sapounakis 
and Katapidi 2017:150). Also, the protective Law 3869/2010 helped many people to avoid bank auctions. The 
newly elected government of SYRIZA (Coalition of the Radical Left) empowered this trend up to a point when it 
came to power in 2015. Finally, the decrease of evictions and property lawsuits is possibly due to massive youth 
immigration abroad as well as to individuals’ return of to their parental homes. 
 
 



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Table 5. Applications to the Court of First Instance of Thessaloniki for landlord/tenant disputes (lawsuits and 
orders), 2006-2016  

Year Lawsuits (codes 201-208) Orders (codes 262-263) Total 
2006 1,887 75 1,962 
2007 1,889 43 1,932 
2008 1,832 84 1,916 
2009 2,258 392 2,650 
2010 2,559 638 3,197 
2011 2,024 1,006 3,030 
2012 1,458 604 2,062 
2013 1,079 545 1,624 
2014 861 418 1,279 
2015 908 395 1,303 
2016 575 349 924 

Source: Court of First Instance of Thessaloniki 
 
7. Comparing Previous Surveys on Homelessness in Greece 
The following five surveys were conducted in Greece: two of them were conducted by NGO Klimaka (2006 and 
2012) in certain areas of Greece, another two surveys were conducted under the supervision of KYADA (2013 
and 2016) in Athens and one survey was conducted in seven Municipalities of Greece on May 2018 under the 
supervision of Panteion University of Athens and the Ministry of Labour, Social Insurance and Social Solidarity 
(Panteion University and Ministry of Labour, Social Insurance and Social Solidarity 2018). Klimaka is a private 
organization established in 2000 with a view to address social problems especially regarding vulnerable groups. 
On the other hand, the City of Athens Reception and Solidarity Center for the Homeless (KYADA) is a public and 
social agency which officially belongs to the Municipality of Athens. In particular, in 2006 NGO Klimaka 
conducted a survey by questioning 200 homeless people from March 2015 until March 2016 (Klimaka 2016). In 
2012, NGO Klimaka conducted anew a similar survey by questioning 214 homeless people (NGO Klimaka 2012 
in Theodorikakou et al. 2012). In 2013 a similar survey was conducted and presented by the City of Athens 
Reception and Solidarity Center for the Homeless (KYADA) by questioning 480 homeless people from June to 
August 2013 (KYADA 2013). Furthermore, in 2016 KYADA presented a survey, funded by the Norwegian 
government, after questioning 451 homeless people from March 2015 until March 2016 (KYADA 2016). Finally, 
Panteion University and Ministry of Labour, Social Insurance and Social Solidarity conducted a survey by 
questioning 1,645 homeless people in 2018 (Panteion University and Ministry of Labour, Social Insurance and 
Social Solidarity 2018). 
7.1 Gender 
 

 
Figure 8. Gender, NGO Klimaka 2006, 2012 

Source: NGO Klimaka 2006, 2012, authors’ editing 
 



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Men are usually more than women among the homeless. In the years following the outburst of the crisis 
homelessness seems to be more of a men’s problem (Panteion University and Ministry of Labour, Social Insurance 
and Social Solidarity 2018). As emphasized in Figure 8, in 2006 25% of the homeless were women and 75% men 
(NGO Klimaka 2006, 2012). Similarly, in KYADA surveys in Athens, homeless men are more, namely 77% in 
2013 and 85.4% in 2016. All surveys show a clear rise in homeless men. 
7.2 Age 

 
Figure 9. Age, NGO Klimaka, 2012 

Source: NGO Klimaka 2012, authors’ editing 
 

 
Figure 10. Age, KYADA, 2016 

Source: KYADA 2016, authors’ editing 
 
At first, it should be noted that certain data should not be mixed in one diagram for statistical reasons. The surveys 
of Klimaka (2012) and Kyada (2016) clearly show that the majority of the homeless are over 40 years of age 
(Figure 9, Figure 10). Furthermore the survey of Panteion University and the Ministry of Labour, Social Insurance 
and Social Solidarity (2018) shows that the majority of the homeless are between 18-44 years of age. A possible 
explanation is a job loss or an economic failure in relation to parental death (parental support is traditional in 
Greece), especially in the Mediterranean countries. 
 



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7.3 Homelessness Duration 

 
Figure 11. Homelessness Duration, NGO Klimaka, 2006, 2012 

Source: NGO Klimaka, 2006, 2012, authors’ editing 
 
Figure 11 shows how the economic crisis has directly affected the homeless population. In 2012, in the beginning 
of the crisis, people who were homeless 1-6 months almost doubled in relation to 2006. The newcomers reached 
from 18.60% of the total homeless population in 2006 to 31.40% in 2012. Another serious problem is that the 
number of people who remain homeless for a period of up to 2 years is considerably high (Klimaka 2006, 2012, 
KYADA 2016). 
7.4 Education 
 

 
Figure 12. Education, NGO Klimaka, 2006, 2012 

Source: NGO Klimaka 2006, 2012, authors’ editing 
 



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Data in Figure 12 confirms that in 2012 the homeless population is more educated than in 2006. It is normal over 
the years that people are more educated. On the other hand, it appears that the low educational level is a typical 
characteristic of homeless people. The state, therefore, should focus on skill-learning for the homeless as a practical 
method to reduce homelessness (NGO Klimaka 2006, 2012).  

7.5 Causes of Homelessness 

 
Figure 13. Causes of homelessness, NGO Klimaka, 2012  

Source: NGO Klimaka 2012, authors’ editing 
 
The three main causes for homelessness are constantly: a) financial problems (29.80%), b) unemployment (17.30%) 
and the lack of family support (17.30%), which total 64.4% (NGO Klimaka 2016). The above three factors are 
exactly the same in the previous survey of Klimaka conducted in 2006. The survey of KYADA (2013) confirms 
Klimaka’s data of 2006 and 2012 (Figure 13). It is clear that economic (unemployment) and financial problems 
are the major factors which trigger homelessness (47.1% in total). Apart from that, family breakdowns and personal 
isolation from family (namely no family support and divorces) play a secondary role which cannot be 
considered to be negligible (24% in total). On the other hand, serious addictions, such as drug use, gambling and 
alcohol, account only for 9.5%, which is relatively low. Finally, the complexity of the causes of homelessness is 
visible as 8.9% of the respondents selected the vague category “other problems”. 

 
Figure 14. The causes of homelessness, KYADA, 2013 

Source: KYADA 2013, authors’ editing 



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7.6 Familial Attitude 
Unfortunately, in Greece the traditional Mediterranean family model became westernized very rapidly. As a result 
solidarity among family members has weakened. When the debt crisis broke out, the problem of lack of solidarity 
became obvious. The weakening of familial safety clearly worsened housing conditions (Papadopoulos and 
Roumpakis 2012:209, 219-220, 2013:211-212).  
 

 
Figure 15. Familial attitude, NGO Klimaka, 2006, 2012 

Source: NGO Klimaka 2006, 2012, authors’ editing 
 
Figure 15 depicts the tranfromation of society into a more faceless and untouchable form. Specifically, during the 
last economic crisis, familial attitude towards the potentially homeless has dramatically worsened. In 2012 three 
quarters of relatives (75%) tend not to support family members who become homeless. Unfortunately, the family 
structure rapidly lost its prestige even in Mediteranean states such as Greece. Between 2006 and 2012 familial 
attitude towards homeless relatives became significantly worse by 7.5% (NGO Klimaka 2006, 2012). Similarily, 
in 2016, according to the survey of KYADA (2016), the percentage of supportive relatives amounted only to 25.5%. 
7.7 Health Insurance 

 

 
Figure 16. Health insurance, NGO Klimaka, 2006, 2012 

Source: NGO Klimaka 2006, 2012, authors’ editing 
 
Figure 16 points out the failure of social programs combating homelessness. Unfortunately, the state not only is 
incapable of finding appropriate accommodation for the homeless but cannot even provide the necessary medical 
assistance. Homeless people excluded from health insurance have steadily accounted for a percentage of 58%. 
What is worse, the areas where the homeless live are usually disease hotbeds. 
 



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7.8 Begging 

 

Figure 17. Begging, KYADA, 2013 
Source: KYADA 2013, authors’ editing 
 
Unfortunately, according to KYADA’s data (2013), almost one in two (49%) of the homeless begged (Figure 17). 
Begging naturally derives from economic obstacles. An additional problem is that begging often entails court 
proceedings, creating a vicious cycle of isolation and stigmatizing citizens. For example, according to article 407 
of the Greek Penal Code, begging is punishable by up to 6 months in jail and up to a €3,000 fine. 
7.9 Change of Personal Situation 

 
Figure 18. Change of personal situation, NGO Klimaka, 2006, 2012 

Source: NGO Klimaka 2006, 2012, authors’ editing 
 
Figure 18 clarifies that the homeless became more optimistic in the middle of the economic crisis. In 2012 almost 
80% of homeless people believed that their situation could change (Klimaka 2012). The respective 2006 
percentage was approximately 66%. Paradoxically, for the large majority of the homeless their future was 
promising. A possible answer is that they did not expect the prolongation of the crisis. Unfortunately, up to now, 
the general economic situation in Greece has drastically deteriorated. 
8. Solutions 
The phenomenon of homelessness is connected with the broader implementation of social policy. In the last decade 
the Greek economy has significantly deteriorated due to the socio-economic crisis. The crisis obviously affected 
the Greek welfare state. As a consequence, due to the lack of financial resources, the state apparatus, private 
organizations and the official Orthodox Church should co-operate with each other in order to eliminate the 
existence of homeless people, no matter if they are Greek or foreigners. Also, there needs to be close collaboration 
with European associations and organizations such as FEANTSA. Better management is the only way forward. 



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More specifically, at first, specialized shelters should be constructed across the country for the homeless where 
they will be able to find temporary general help, free medical assistance and food, on a case by case basis. 
Officially the social shelters would be Open Day Shelters for the Homeless, Dormitories, Transient Hospitality 
Hostels, and supportive apartments. Moreover, apart from receiving a small monthly benefit, the homeless should 
have the right to free education in the state educational structures. Unfortunately, there is a strong relation between 
the lack of education and homelessness. Thirdly, every homeless person should be enrolled in a special state list 
and all social shelters should be closely interconnected. The purpose behind the interconnection would be to 
provide every available source of assistance towards homeless people. Finally, there is significant need for 
additional research, political commitment, strategic planning, investing of fiscal and human resources and 
voluntary activity.  
Unfortunately, up to now, the usually implemented policies have intended to support solely the basic needs of 
homeless people, such as food. There is a lack of appropriate housing shelters. Furthermore, people, especially 
those with mental or other disorders, need to be handled in a flexible manner that includes crisis intervention, a 
well-functioning social safety net and actual housing availability (Busch-Geertsema et al. 2010:5, 71). Tsemberis 
and Eisenberg (2000:488-489) have suggested a three-stage program called “Continuum of Care”, especially for 
homeless people with mental disorders or addictions. At the first stage, beneficiaries are encouraged to stay in a 
shelter so as to abandon their former way of living. In the shelter, the homeless receive health services and general 
aid. In the second phase, they learn to live alone at home and in the final stage, if standards are met, accommodation 
is provided in places of permanent residence where they receive sufficient support and particular treatment. 
Another solution is the “Housing First” scheme which is intended to immediately re-house the homeless and then 
provide other assistance (economic, medical, education technical or even administrative). Of course, the program 
is organized in a voluntary manner so that people living rough can freely chose whether to participate in the 
program or leave (Gulcur et al. 2003:182-183).  
In Greece, there was an attempt to implement the “Housing First” program in 2015. In 2017 the program was 
replaced by KEA (Social Solidarity Income) which offers a way out only to vulnerable citizens that are not 
accommodated by friends or family members. The Achilles heel of the abovementioned programs is bureaucracy. 
Many times homeless people are unaware of their own rights. What is worse, without additional help homeless 
people cannot afford the cost of living in houses and as a result they do not easily abandon the streets. Homeless 
people need proper advice on a regular basis by specialized permanent staff which will “patrol” the streets, helping 
the homeless. 
9. Conclusions 
The traditional weakness of the Greek welfare state in relation with the continuous welfare cuts introduced during 
the crisis has significantly reduced household incomes. Even middle income households have to cope with 
precarious jobs or unemployment. In Greece cuts, economic stagnation, as well as the high housing costs, have 
increased homelessness. In addition, the replacement of family as a social safety net has further aggravated the 
situation of homeless people. 
Despite the fact that the reasons for which people sleep rough have not changed during the crisis (e.g. economic 
reasons, unemployment and lack of family support), the personal profile of the homeless has changed. After the 
crisis, men are affected more than women and young people more than older people. Even more, university 
graduates end up on the streets more often than before the emergence of the crisis. Moreover, the group of 
immigrants or refugees has gradually increased the homeless population, especially the vulnerable group which 
resides in non-decent accommodation. Regarding the duration of homelessness it seems that after the crisis it has 
increased up to six months. 
Consequently, it is evident that the governments during the last recession could not solve or contain the problem 
of homelessness. Governmental countermeasures have only been temporary and fragmented. Therefore, the 
adopted countermeasures have been ineffective. The failure to cope with the rise of homelessness is probably 
correlated with the lack of data and resources, weak personalization approaches and inadequate policy design. 
However, the legal framework for the protection of the main residence has acted as an obstacle to a further increase 
in the rate of the homeless. 
Acknowledgments 
The authors would like to thank the reviewers of this journal for their suggestions that improved the presentation 
of the herein discussed topic. 
 



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