Conversion of Vacant Offices into Homes in the Netherlands Stalls: Challenges and Solutions

Conversion of Vacant Offices, Shops, and Churches into Homes Stalls in the Netherlands

The Netherlands has ambitious targets to turn underused office buildings, retailers, and even churches into housing stock—an initiative lauded for its speed, cost-effectiveness, and sustainability. Yet, new figures from Statistics Netherlands (CBS) show only 8,675 conversion homes were completed in 2025, far below Housing Minister Mona Keijzer’s annual goal of 15,000. With more than 3 million square metres of vacant office space still untouched, the country faces both a housing shortage and environmental pressures from nitrogen deposition.

Current State of Building Conversions

According to CBS, conversions of non-residential properties yielded:

• 8,675 homes in 2025, down from 8,755 in 2024.
• A notable decline in former office conversions, while shops, schools, and churches remained roughly constant.
• A sharp drop from 2019, when around 12,000 homes were created through conversions.

Despite the slowdown, Minister Keijzer remains focused on delivering 100,000 new homes per year by any viable means—transformations or new builds—rather than fixating on the 15,000-unit conversion target alone.

Why Conversions Matter for Sustainability and Nitrogen Emissions

Transforming existing buildings offers key environmental benefits:

• Reduced construction waste and energy use compared to new builds.
• Lower nitrogen emissions. New construction contributes significantly to nitrogen deposition, straining biodiversity and triggering regulatory delays.
• Preservation of urban fabric, historic character, and existing infrastructure.

Government architect Francesco Veenstra, the Cabinet’s main construction advisor, warns that stalling conversions are “unacceptable” given the urgent need to curb nitrogen emissions and unlock housing supply in built-up areas.

Government Targets and Policy Responses

• 15,000 homes per year from conversions: a target set by former ministers and adopted by Minister Keijzer.
• 100,000 total homes per year: the broader annual housing goal covering all construction methods.

Keijzer emphasizes flexibility: “Someone who ultimately gets a key in their hands does not really care whether it is a transformation home or a newly built home.” She pledges to continue supporting conversions without allowing the target to divert focus from overall housing delivery.

Expert Perspectives

Francesco Veenstra (Government Architect)

Veenstra argues that:

1. Nitrogen impact for new construction is several times higher than for conversions.
2. Underutilised office space offers immediate building stock.
3. Enhanced skills and craftsmanship in building transformation will drive down costs over time.

He advocates not only maintaining the 15,000 conversion target but potentially raising it to meet environmental and housing needs.

Prof. Hilde Remøy (TU Delft, Real Estate Management)

Remøy notes that the “low-hanging fruit” of conversions has largely been plucked since the euro crisis. Remaining buildings are often:

• Structurally unsuitable.
• Owned by multiple stakeholders awaiting area-wide redevelopment.
• Cost-prohibitive without coordinated investment.

However, she believes a 15,000-home conversion goal is ambitious but achievable, especially if large office estates can be repurposed through collaboration led by municipalities.

Key Challenges in Building Transformations

1. Ownership Fragmentation: Large sites may have several owners, each waiting for the other to invest.
2. Technical Complexity: Converting offices into apartments demands different engineering, plumbing, and safety standards.
3. Financial Viability: High refurbishment costs can outweigh the economics of a brownfield site compared with greenfield development.
4. Regulatory Hurdles: Zoning, heritage protection, and building permits add time and expense.

Strategies to Jumpstart Conversions

Municipalities, developers, and investors can take practical steps to accelerate conversions:

• Area-based Planning: Coordinate multiple conversions within business districts to share infrastructure costs and attract private capital.
• Financial Incentives: Offer grants, tax breaks, or low-interest loans specifically for adaptive reuse projects.
• Knowledge Sharing: Develop best-practice repositories on technical standards, contractor skills, and case studies.
• Streamlined Permitting: Create dedicated administrative pathways for adaptive reuse to reduce lead times.

By combining policy incentives with cross-sector cooperation, the Netherlands can transform underused properties into a vital supply of sustainable, urban housing.

Conclusion

While the pace of converting vacant offices, shops, and churches into homes has slowed, the environmental and housing benefits remain clear. Achieving—and potentially exceeding—the government’s 15,000-unit conversion goal will require collaboration among national policymakers, municipalities, developers, and local communities. With targeted incentives, streamlined regulations, and shared expertise, adaptive reuse can be a cornerstone of meeting the Netherlands’ housing targets.

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