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It is estimated1 that since February 2022, close to 2 million housing units have been damaged, with over one-fourth of the damaged units being destroyed, while three-fourths are partially damaged. In the housing sector, of the 11 percent increase in the cost of damage since RDNA2, approximately a fifth can be attributed to the damage caused by the breakage of the Kakhovka Dam and the subsequent flooding (primarily in the Khersonska oblast). Beyond official estimates, the first half of 2024 saw significant damage to housing in the country's east, south, and northern parts, further deteriorating the situation and increasing the number of persons uprooted from their homes. The upcoming winter of 2024-2025 will be detrimental to various groups of people, including internally displaced persons (IDPs), those not displaced in conflict-affected areas, returnees, and host communities. Despite the launch of Resolution #930 in September 2023, which identified minimum standards for Collective Sites, many still need to be equipped and require regular maintenance. Additionally, IDPs are frequently housed in privately rented or substandard houses that, like most of the housing in Ukraine, may lack adequate insulation. Returnees and non-displaced individuals also face similar insulation challenges in their homes, and the situation is worsened by conflictrelated damages such as leaking roofs, broken windows, and damaged perimeter walls, which compromise the thermal integrity of the houses. This is particularly relevant to the areas within or close to the front line. However, even in larger cities, targeted attacks on energy infrastructure will lead to increased power cuts and reduced heating capacity.
Furthermore, damage or a lack of maintenance has also affected the heating systems in collective sites and individual houses and apartments. In many cases, these systems, including water heaters, electricity grids, gas and hot water pipelines, internal pipes, radiators, and stoves, must be reactivated, repaired, or replaced. Portable heating appliances should be provided in cases where the heating system is non-existent or cannot be restored before the upcoming winter season. Solid fuel and stoves (including fittings and installation equipment) should also be supplied, even in cases where access to coal or firewood markets is restricted or regular suppliers refuse to deliver. The damage to collective heating systems, electricity facilities, and the grid will result in households and communities relying on solid fuel as an alternative option, regardless of price increases. The destruction of the Nova Kakhovka hydropower plant and other hydropower plants will considerably impact energy coverage during winter. Even with full access to functioning heating systems, many families will need help paying for heating due to the rising cost of living, loss of income, and depletion of savings during displacement.
In addition to addressing heating issues, essential household items such as warm winter clothing, thermal underwear, blankets, and quilts are needed for displaced individuals, returnees, and all those affected by the conflict who have lost their belongings, lack access to markets, or cannot afford to purchase essential winter items. While many have been provided with these items in the previous year, the Shelter Cluster realizes that daily shelling incidents are still occurring in addition to newly evacuated persons. These persons may need such items, and interventions should be based on a sex and age-disaggregated household needs assessment according to the vulnerability criteria found in the Shelter Cluster HNRP 2024 Activities Handbook. These provisions can be made either in-kind or through cash assistance, specifically for winter preparations.
Assistance was guided by the principle of deduplication, where partners were encouraged to confirm whether beneficiaries were already receiving state subsidies and assess whether the amount received was sufficient to meet their needs. The Shelter Cluster has consistently worked to minimize duplication in winter activities both within and between clusters through traditional coordination mechanisms. Partners should refer to the deduplication section for each winter support activity in the abovementioned Activities Handbook.
The 2024-2025 Winterization plan builds on last year's experiences, lessons learned2 , and stakeholders’ feedback. These activities and the associated procurement chains will require considerable time and financial resources. The Government of Ukraine (GoU) is taking the lead in preparing and implementing Winterization initiatives, while humanitarian agencies will also play a complementary role.