As of November 2025, the register of internally displaced persons accounts for 4.4 million individuals. It has become evident that for these millions of Ukrainians, the status of a displaced person has transitioned from a transient situation to a long-term reality. The state, in turn, faces a significant challenge: transforming temporary policies into a systemic and long-term support model.

The scale of internal displacement caused by the ongoing full-scale war has resulted in numerous challenges: loss of housing and property, limited access to stable income, overburdening of social and medical infrastructure in host communities, risks of social marginalization, and the threat of losing the educational and cultural potential of regions under occupation or in conflict zones.

While in previous years, the priority was emergency humanitarian response like evacuation, provision of temporary shelter, and payment of basic living assistance, 2025 has exposed the profound crisis of “temporariness.”

The key challenge for the authorities and society has been the total fatigue of infrastructure and depletion of resources in host communities. Compact living arrangements, which were created as temporary shelters in schools or dormitories, have become physically and morally outdated over the years, failing to provide decent living conditions. At the same time, the rental housing market in safe regions has become more expensive, while the financial capacity of IDPs has diminished.

It has become clear that the government’s strategy to simply distribute state support funds does not work. There is a need for radical changes in the current policy: new incentives for employers, a shift of the approach to housing issues from renting to the realm of ownership (mortgages, vouchers), and digitization to eliminate humiliating queues for certificates.

This is reflected in the significant number of resolutions issued by the Cabinet of Ministers of Ukraine aimed at supporting employment, providing housing, compensating housing and communal expenses, accessing medical and social services, as well as launching digital tools to account for the needs of internally displaced persons (hereinafter — IDPs).

However, in addition to basic social and economic needs, the preservation of human, educational, and cultural capital of displaced communities has become a more pressing issue in 2025. The relocation of higher education establishments, efforts to ensure continuity of education for students and lecturers, as well as support for the cultural heritage of temporarily occupied territories, have remained fragmented, often outside the scope of governmental attention, and largely dependent on donor and civic initiatives. The lack of clear integration of these issues into the overall policy concerning IDPs facilitates risks of long-term losses for post-war recovery.

This digest reviews key government decisions of 2025 concerning support for IDPs. We will analyze their content, implementation progress, and potential impact on the lives of IDPs. In conclusions we will formulate brief findings that will help to see how well the state was able to address the key challenges in supporting IDPs. Additionally, we will outline further recommendations on what priority changes should be implemented.

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Economic integration

Compensation for employing IDPs

Cabinet resolution #1271 of October 8, 2025

Who it affected: internally displaced persons and employers

Summary:

  • compensation for employing IDPs is provided for a maximum of 6 months from the date of employment for employers in border oblasts (Dnipropetrovsk, Donetsk, Zaporizhzhia, Mykolaiv, Sumy, Kharkiv, Kherson, Chernihiv) and amounts to one subsistence minimum (about 3,100 UAH)
  • state-funded institutions (with the exception of social service providers) and funds of mandatory state social insurance will not be eligible to receive this compensation
  • to receive compensation:
    • employer must confirm that they have paid taxes and social insurance premiums for the employee
    • person for whom the compensation is calculated must be employed under a fixed-term or indefinite contract (part-time is also allowed)
    • application for compensation must be submitted to the employment center at the employer’s registered place of activity.

What happened: the Cabinet has extended the period during which employers from frontline regions and other regions heavily impacted by war will receive compensation for the employment of internally displaced persons. This is necessary to stimulate employers to hire IDPs, especially in border areas where there is a high demand for labor, and where IDPs often face difficulties in employment. This compensation reduces the financial burden on businesses while simultaneously providing social support to vulnerable population groups, helping to integrate IDPs into the economic and social life of the region, and increasing employers’ motivation to comply with labor legislation and pay taxes.

 

Housing policy

Housing vouchers for IDPs

Cabinet resolution #1176 of September 22, 2025

Who is affected: internally displaced persons, the Ministry of Digital Transformation, and the Ministry of Finance

Summary:

  • the state started issuing housing vouchers worth 2 million UAH each. IDPs can use them for purchasing housing, participating in construction, or repaying and servicing a mortgage loan
  • eligible recipients of housing vouchers are:
    • citizens of Ukraine registered as internally displaced persons
    • those displaced from temporarily occupied territories or zones of active hostilities
    • participants in hostilities and persons with disabilities caused by war
  • application for the voucher can be submitted via the Diia portal or via administrative services centers
  • submitted applications are reviewed by a commission composed of representatives of the authorized body (the village, settlement, city, city district, or military administration of the locality) and members of the public. Candidates representing the public may be nominated by international and civil society organizations, including anti-corruption organizations. In villages and settlements, candidates can also be nominated by individuals. The number of public representatives must not be less than one-third of the total membership of the commission.
  • the commission’s decision must be approved by the authorized body’s decision within 5 working days
  • a housing voucher is automatically issued using the Register of Damaged and Destroyed Property based on a decision approved by the authorized body
  • housing bought with the voucher cannot be sold for 5 years.

What happened: the mechanism established by the Cabinet is necessary to address the critical housing problem of internally displaced persons who lost their homes due to occupation or warfare but were not compensated by the previous law. It provides state support to the most vulnerable categories of IDPs — participants in hostilities and persons with war-related disabilities — by giving them a real financial opportunity to purchase their own housing or resolve housing issues through mortgages. In essence, the state compensates for the loss of housing in occupied territories and helps people start anew in areas controlled by Ukraine, while simultaneously preventing abuse of the state funding by a five-year restriction on the sale of housing purchased with the vouchers.

 

Support for IDPs with mortgage loans

Cabinet resolution #998 of August 13, 2025

Who is affected: internally displaced persons, the Ministry for Communities and Territories Development, and the Pension Fund

Summary:

  • a mechanism for providing state assistance to IDPs for obtaining mortgage loans is approved, which is provided through the payment of:
    • 70% of the down payment amount for a mortgage loan secured by the property, which may not exceed 30% of the property value, with a maximum value of 2 million UAH
    • 70% of the monthly payment during the first year of the loan for a mortgage loan, provided to IDPs or individuals whose place of residence is registered or declared in frontline territories, but not exceeding 150,000 UAH of total annual payment, according to the schedule provisioned in the loan agreement
    • 40,000 UAH to cover the costs of services, one-time bank commission for providing the loan, fees, and insurance payments for the mortgage loan.

What happened: state assistance for internally displaced persons for obtaining a mortgage loan for housing valued up to 2 million UAH has been approved. This support program aims to make mortgages accessible for IDPs and individuals from frontline territories who, due to the loss of housing and financial difficulties, are unable to independently accumulate a significant down payment and manage the full loan amount at the initial stage.

 

Establishment of a digital real estate system to provide IDPs with housing

Cabinet resolution #894 of July 16, 2025

Who is affected: internally displaced persons and the Ministry for Communities and Territories Development

Summary:

  • a new electronic system will be created to provide displaced persons with housing that will collect and publish information on state, municipal, and private housing available for IDPs (hereinafter — the System)
  • the System will combine data from state construction registries, land cadastre, real estate, and databases of IDPs
  • users will have access to a portal and an electronic cabinet
  • the Ministry for Communities and Territories Development will administer the System
  • the System will be developed and should be operational by October 1, 2026.

What happened: an electronic system will be launched to organize information on available housing options for placing IDPs in regions. All available housing data will be contained in one place, simplifying the search for available housing for IDPs.

 

Housing for Mariupol residents

Cabinet resolution #814 of July 07, 2025

Who is affected: internally displaced persons, the Ministry for Communities and Territories Development, the Mariupol City Military Administration, the State Specialized Financial Institution State Fund for the Support of Youth Housing Construction, and PJSC Ukrainian Financial Housing Company

Summary:

  • preferential mortgage loans will be provided to IDPs from the Mariupol city territorial community for the purchase of housing under the new 2-year experimental project
  • 2.2 billion UAH from the budget of the Mariupol city territorial community has been allocated for these loans, meaning that funding comes from the frozen local budget of temporarily occupied territories of Ukraine
  • additional sources of funding may be involved, including assistance provided by international financial institutions, international organizations, and foreign states
  • the key objective is to provide housing for IDPs who left these territories
  • the project has two components:
    • provision of preferential mortgage loans to the target category of citizens
    • construction of municipal (social) rental housing in designated communities
  • the Ministry for Communities and Territories Development serves as the project coordinator. The State Fund for the Support of Youth Housing Construction implements the part related to preferential mortgage loans
  • key program requirements for participation:
    • annual interest rate of 3 percent
    • loan term of up to 30 years
    • IDPs’ own contribution between 3 and 6 percent of the housing value, depending on the IDP category
  • eligible participants are Ukrainian citizens who are IDPs and who:
    • before displacement, actually resided or stayed within the Mariupol city territorial community or
    • participated in the defense of the city of Mariupol during the armed aggression of Russia against Ukraine and were deprived of personal liberty as a result of this aggression (with supporting documents issued by authorized state bodies).

What happened: Mariupol residents who lost housing due to hostilities will be able to get preferential mortgages to purchase new housing.

 

State support for hosting IDPs

Cabinet resolution #616 of May 27, 2025

Who is affected: internally displaced persons, establishments, enterprises, and organizations, private entrepreneurs, and the Pension Fund

Summary:

  • compensation is provided for consumed housing and utility services, for the purchase of liquefied gas, and for solid and liquid household stove fuel to private, municipal, and state establishments, enterprises, and organizations, as well as to private entrepreneurs, who host IDPs after May 1, 2025, and applied to receive this compensation
  • to receive compensation, an application must be submitted via a personal account on the web portal of electronic services of the Pension Fund
  • the Pension Fund allocates compensation directly to the establishments where IDPs are accommodated free of charge, not to central executive bodies that own them or oblast state administrations (oblast military administrations).
  • compensation is available regardless of the fact whether the establishment is municipal, state, or private
  • compensation calculations for accommodation will be carried out by the Pension Fund in accordance with established social housing standards, social norms for housing and utility services, and standards for the provision of solid fuel to the population, following the approach used in the housing subsidy program. As a result, payment receipts, excessive reporting, and service invoices previously required under the former compensation procedure will no longer be necessary
  • compensation is paid monthly to the establishments (no later than on the 10th day of the month following the month for which compensation is accrued).

What happened: an updated mechanism for compensating utility costs for establishments and individual entrepreneurs that host IDPs free of charge has come into effect. Compensation is calculated according to social norms, not based on actual bills or receipts. Financial reporting on consumption is no longer required. Funds are transferred directly to the establishments housing the people, not to the authorities that own these establishments.

 

Social and medical services

Experimental services to support IDPs

Cabinet resolution #1169 of September 17, 2025

Who is affected: internally displaced persons, the Ministry of Social Policy, Family and Unity, and the Ministry of Health

Summary:

  • the procedure for providing two experimental social services is defined:
    • long-term medical examination. This service is provided to IDPs, including persons with limited mobility, who require medical monitoring and treatment after evacuation. It includes medical examinations, issuance of invoices, all medical procedures, and psychological support. The service is continuous, lasts for 30 days, and requires a contract with the National Health Service to ensure access to medical services
    • social shelter service. This service is the next step after long-term medical care. It is provided to IDPs who need temporary housing and social support after receiving medical services. It covers proper living conditions, food, and necessary social assistance. Shelter is provided for up to 12 months for persons requiring additional support on a daily basis, including persons with limited mobility
  • the experimental project continues until December 31, 2026.

What happened: implementation of this mechanism is a part of a comprehensive support program for IDPs, providing not only material assistance but also contributing to their social adaptation during wartime.

 

Additional support for IDPs

Cabinet resolution #1157 of September 17, 2025

Who is affected: internally displaced persons and the Pension Fund

Summary:

  • IDPs across Ukraine will receive subsidies to compensate the cost of housing and utility services and the purchase of liquefied gas, solid and liquid household stove fuel if they:
    • have been displaced from areas of active hostilities or from temporarily occupied territories without an established date for cessation of hostilities
    • have housing that is destroyed or damaged, and this fact is confirmed by the State Register of Damaged and Destroyed Property or local self-government or oblast administrations.
  • IDPs in frontline oblasts will be able to receive subsidies to compensate for the cost of housing and utility services and the purchase of liquefied gas, solid and liquid household stove fuel if they:
    • actually reside in the Sumy, Kharkiv, Kherson, Luhansk, Donetsk, Dnipropetrovsk, Zaporizhzhia, Mykolaiv, and Chernihiv oblasts
    • heat their housing with solid stove fuel
    • have not received one-time assistance from international organizations.

What happened: the state is helping to provide heating to the most vulnerable groups during wartime — IDPs who lost their homes or must live in frontline oblasts with limited infrastructure. Many IDPs find themselves in difficult financial circumstances after losing property and employment, making it impossible to independently secure heating fuel for winter. Additional state support prevents a humanitarian crisis, especially in frontline oblasts where ongoing shelling and infrastructure destruction limit or eliminate centralized heating, forcing people to rely on stove heating to survive cold seasons.

 

Conclusions

The decisions adopted in 2025 indicate a gradual shift toward the development of a comprehensive state policy on IDPs, moving from emergency humanitarian assistance to more complex tools for integration and recovery.

The most notable achievement is the attempt to build a multi-level housing policy: compensation for temporary accommodation (Cabinet resolution #616), mortgage programs (Cabinet resolution #998), and housing vouchers (Cabinet resolution #1176). Another important step is the digitalization of housing records (Cabinet resolution #894), which simplifies procedures and reduces administrative burdens for both IDPs and state institutions.

The Mariupol precedent (Cabinet resolution #814) is particularly significant: the use of frozen community funds to provide housing in evacuation. This model should be scaled for other occupied communities in 2026.

However, several problems remain unresolved.

First, housing programs have limited coverage and do not form a single strategy for transitioning most IDPs from temporary to permanent housing. The voucher amount of 2 million UAH may be insufficient given inflation and rising real estate prices in safer regions. Additionally, the expiration of some benefits will require IDPs to become fully economically independent, which many are not ready for.

Second, economic integration is focused primarily on incentivizing employers, while lacking programs for retraining that align with regional labor market needs.

Third, there remains a gap in state policy concerning the preservation of the cultural heritage of occupied territories and support for relocated educational establishments. Legislation prioritizes physical survival while ignoring the cultural dimension. There are no programs to support the intangible cultural heritage of occupied regions. Communities dissolve into new environments, losing their ties. Without preserving regional cultures, IDP policy risks remaining purely social, failing to create prerequisites for post-war restoration and return of the original inhabitants to their communities.

 

Recommendations

Given the conclusions, the state should focus on developing a high-quality, human-oriented policy on supporting IDPs in 2026. The following steps are necessary:

  • to develop a unified medium-term housing strategy for IDPs with a clearly defined roadmap on how to get from temporary accommodation to permanent housing
  • to strengthen the link between employment incentives for IDPs and professional retraining programs
  • institutionalize experimental social and medical services after their effectiveness is proven.

The key goal of 2026, however, should be integration of the cultural and educational components into IDP housing and economic strategies. Otherwise, Ukraine risks permanently losing an entire generation and the identity of its occupied regions.