The scale of the challenge.

1.3M
Estimated homeless in Europe
~700,000 in 2015 → ~1.3 million in 2023 · FEANTSA / Abbé Pierre Foundation
9,777
Brussels nocturnal count
November 2024 · +25% vs 2022 · 7.8 per 1,000 inhabitants · Bruss'Help
15+
Cities with comparable ETHOS 1–3 counts
EU Homelessness Count methodology · standardised ETHOS light categories

National counts.

Official national estimates vary significantly in methodology. France and Germany count accommodated homeless; Nordics focus on rough sleeping. All figures are the most recent available.

🇫🇷
France
333,000
2022
🇩🇪
Germany
262,600
2022
🇮🇹
Italy
96,197
2021
🇳🇱
Netherlands
30,600
2022
🇸🇪
Sweden
27,400
2021
🇪🇸
Spain
28,552
2022
🇮🇪
Ireland
13,179
2023
🇵🇹
Portugal
10,800
2022
🇫🇮
Finland
3,429
↓ Housing-led

Sources: OECD Affordable Housing Database · national statistical offices · FEANTSA. Definitions vary by country.

City-level counts.

Standardised ETHOS light methodology enables meaningful comparison across cities. Counts cover roofless (ETHOS 1), houseless sheltered (ETHOS 2), and temporary accommodation (ETHOS 3).

City Country ETHOS 1
Roofless
ETHOS 2
Houseless
ETHOS 3
Temp. accom.
Total Count year
Dublin ★ 🇮🇪 Ireland 192 4,867 2,588 7,647 2022
Lyon ★ 🇫🇷 France 412 3,841 3,274 7,527 2022
Budapest 🇭🇺 Hungary 1,204 2,023 286 3,513 2022
Münster 🇩🇪 Germany 148 892 688 1,728 2022
Bochum 🇩🇪 Germany 89 612 350 1,051 2022
Porto 🇵🇹 Portugal 218 243 146 607 2022
Charleroi 🇧🇪 Belgium 143 298 147 588 2022
Cork 🇮🇪 Ireland 62 311 171 544 2022
Košice 🇸🇰 Slovakia 312 185 23 520 2022
Namur 🇧🇪 Belgium 98 241 130 469 2022
Nijmegen 🇳🇱 Netherlands 34 149 67 250 2022
Milan 🇮🇹 Italy 88 124 44 256 2022
Ljubljana 🇸🇮 Slovenia 62 121 39 222 2022

★ Recommended pilot cities based on count size

Brussels (9,777, Nov 2024) and Amsterdam (15,731, Q1 2024) use own methodology — not directly comparable to EU Homelessness Count figures above.

Five cities.
Five evidence-based rationales.

Each city was selected on data density, existing service infrastructure, administrative data environment, and operational fit with the It Means model.

🇧🇪
Brussels
Belgium · Capital Region
Already live — the highest-urgency city in Western Europe by recent growth rate.
9,777 counted in the November 2024 nocturnal count (+25% vs 2022). 7.8 per 1,000 inhabitants — among the highest density in the EU. Strong EU policy visibility creates demonstration effect for institutional adoption. It Means is already operational in Brussels with 61 cardholders and 8 merchant partners.
Why It Means fits: existing cardholder base, operator network, and merchant agreements provide the infrastructure for rapid scale. Brussels's EU-facing profile maximises visibility for funding applications.
9,777
Counted Nov 2024
Live
Status
🇳🇱
Amsterdam
Netherlands · North Holland
Largest standardised ETHOS-light count in the EU — and the city already does it quarterly.
15,731 ETHOS-light count in Q1 2024 — the highest comparable figure in Northern Europe. Amsterdam's municipal social services conduct regular ETHOS-light monitoring, meaning cardholder onboarding data infrastructure is partially pre-built. The Netherlands has strong digital identity (DigiD) precedent that reduces GDPR onboarding friction. Note: one Dutch city was replaced in the EU Homelessness Count due to GDPR constraints — Amsterdam's existing monitoring framework mitigates this risk.
Why It Means fits: quarterly ETHOS monitoring means the city already tracks exactly the population It Means serves. Municipal data readiness significantly reduces operator onboarding time.
15,731
ETHOS-light Q1 2024
Phase 3
Planned
🇮🇪
Dublin
Ireland · Leinster
Highest EU Homelessness Count figure in the dataset — with a data environment built for action.
7,647 in the EU Homelessness Count (2022) — highest standardised figure in the dataset alongside Lyon. Ireland has a strong administrative data environment (PASS system) that tracks homeless service use. Critically, Dublin's ETHOS 3 load is high — 2,588 in temporary accommodation, primarily hotels and B&Bs. This maps directly onto the It Means "nights" merchant channel: hotels and B&Bs are natural merchant partners already operating in this space.
Why It Means fits: hotel/B&B operators in Dublin are already accustomed to receiving government per-night rates for accommodating homeless individuals. The fixed-rate merchant model is already conceptually familiar.
7,647
EU count 2022
Phase 2
Target
🇫🇷
Lyon
France · Auvergne-Rhône-Alpes
Highest standardised city count in the EU Homelessness Count — and an active merchant solidarity culture.
7,527 in the EU Homelessness Count (2022) — the highest standardised figure, tied with Dublin. France has a strong solidarity commerce culture (Carillon network of "café suspendu" merchants) that prefigures the It Means merchant model. Lyon's metropolitan area has active associations coordinating between NGOs and food businesses. France's 333,000 national count is the highest in Europe, making Lyon a high-visibility demonstration city for national-scale adoption.
Why It Means fits: the Carillon/La Cloche network demonstrates that Lyon merchants already accept the "suspended service" concept. It Means digitises and scales exactly that ethos — reducing the merchant onboarding conversation from education to upgrade.
7,527
EU count 2022
Phase 2
Target
🇩🇪
Berlin
Germany · Berlin
Germany's largest city — with ~439,500 accommodated homeless and the NGO ecosystem to match.
Germany counted 262,600 homeless nationally in 2022 — second only to France. Berlin, as the country's largest city and social services hub, hosts a disproportionate share. The January 2024 official count recorded approximately 439,500 accommodated homeless nationally. Berlin has a dense NGO ecosystem including specialist homeless services, soup kitchens, and emergency shelters — all natural operator partners. Germany's hospitality sector density in Berlin creates deep merchant network potential.
Why It Means fits: Berlin's scale means even a pilot covering 0.1% of the accommodated homeless population would represent ~440 cardholders — enough to achieve statistical significance for funder reporting and academic research partnerships.
439k
Accommodated (DE, Jan 2024)
Phase 3
Planned
The service statistics paradox

Places with more services record more service users. A city with 50 emergency beds records 50 homeless people. A city with no beds records zero — not because there are none, but because there is nowhere to count them. Rough sleeping is systematically undercounted across Europe. EU-SILC data shows most homelessness is hidden — people staying with family or friends, in temporary arrangements, or in overcrowded housing. Platform transparency and the append-only ledger directly address this by creating a continuous, consent-based record of service use that builds a more accurate picture over time.

City selection and pool sizing uses four data layers, weighted by data availability and recency.

1
ETHOS 1 density
Roofless count per 1,000 inhabitants. Primary signal for rough sleeping prevalence and QR scan frequency.
2
ETHOS 2–3 load
Sheltered and temporary accommodation count. Drives the "nights" merchant channel and hotel/shelter operator partnerships.
3
Service capacity
Number of NGOs and social services already operating. Proxy for operator onboarding speed and cardholder registration capacity.
4
Merchant density
Food service and accommodation businesses per km² in target neighbourhoods. Determines scan frequency and payout volume.
← Back to overview Competitive benchmark → Funding strategy →
⚠ Confidential — It Means Platform Specification v2.0 — March 2026 Not for public distribution · Internal use only · Brussels, Belgium GDPR compliant · Luxembourg jurisdiction · Append-only ledger