Following the full-scale Russian invasion in 2022, the need for housing in Ukraine has increased many times over. The Humanitarian Shelter Cluster is one of the key coordination platforms of the UN and its partners for addressing the housing needs of people affected by the conflict. The Global Shelter Cluster, established under the auspices of the Inter-Agency Standing Committee (IASC), aims to provide those affected by war and natural disasters with “the means to live in safe, dignified and adequate housing.” It coordinates the efforts of all organisations, from government agencies to humanitarian agencies, to ensure that aid reaches those in need more quickly and is truly needed by those who need it. The IFRC is responsible for activities in natural disasters, while the UNHCR is responsible for activities in conflict situations. This joint structure has dozens of partners around the world.
Structure of the Shelter Cluster in Ukraine
In Ukraine, the Shelter Cluster works closely with other cluster initiatives and government agencies. It is led by UNHCR, as in all conflict contexts, and co-coordinated at the national level by the Ukrainian office of People in Need. The cluster is divided into several regional hubs – in Kyiv, Kharkiv, in the east and south of the country – each with its own coordinators. For example, the Shelter/NFP (housing and non-food items) hub in Kharkiv is led by People in Need, while the others are mainly led by UNHCR. The cluster’s partners include nearly 200 organisations, among which are international and Ukrainian NGOs, UN agencies such as IOM and UNICEF, and the Ukrainian Red Cross. According to data from Ukraine’s Shelter Cluster, as of the end of 2024, approximately 2.3 million people had received assistance with housing or basic necessities through a network of more than 190 partners. These include numerous internally displaced persons (IDPs) as well as residents of frontline areas whose homes have been damaged or destroyed.
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Goals and principles of work
The main goal of the Shelter Cluster is to quickly organise assistance to people with housing, taking into account the different needs of population groups. This includes emergency shelters and repair kits, temporary rental housing and, where possible, major repairs to houses. The cluster operates according to international humanitarian aid principles: impartially and based on needs, cooperating with local authorities and adhering to Sphere standards. The focus is on the most vulnerable residents: older people, families with children, and persons with disabilities who remain in damaged homes or are temporarily living in shelters and dormitories. The cluster’s approach aims to tailor assistance to specific circumstances, such as insulating homes before winter or providing special shelters for homes near the front line. All cluster activities are subject to the general principles of providing “decent housing” – i.e. taking into account safety, privacy and sanitation standards.
Temporary and long-term housing programmes
The Shelter Cluster in Ukraine implements a wide range of programmes. These include providing emergency repair kits (tools, windows, doors), minimal shelters and refuges, as well as cash assistance to pay for rent or housing and communal services. UNHCR, the cluster leader, purchases tents and building materials and provides cash assistance for the refurbishment of premises. As part of its projects, IOM is involved in the repair of communal facilities and assistance in the restoration of infrastructure in collective centres where displaced persons live. UNICEF focuses on children’s shelters and safe environments in such centres. The Ukrainian Red Cross and local NGOs help to organise the functioning of temporary shelters (dormitories, hostels, sanatoriums) and provide psychological support. In this way, the Shelter Cluster coordinates the activities of numerous partners to ensure that every displaced person has a roof over their head and, if necessary, a set of household items and heating equipment.
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Challenges of implementation and interaction with authorities
The war creates numerous complications for the provision of housing assistance. Destroyed roads, mined areas and constant shelling often make it difficult to access affected areas. This forces the cluster to constantly update evacuation plans and alternative delivery scenarios. Funding also remains unstable: needs are enormous, and donor resources are limited, especially due to the economic crisis. Providing shelter during the winter period is a major challenge, when the attractiveness and durability of temporary structures are extremely important. During winter campaigns, the Shelter Cluster works closely with relevant government committees and local authorities, synchronising the procurement of materials (e.g. insulation) and their transfer to displaced persons.
Interaction with the Ukrainian government takes place within the framework of overall humanitarian coordination, led by the United Nations Office for the Coordination of Humanitarian Affairs (OCHA). The cluster coordinates its actions with official state housing programmes and complies with national building codes when repairing destroyed buildings. For example, when renovating dormitories or schools into shelters, fire safety and accessibility requirements for people with disabilities are observed. In general, the Shelter Cluster acts to complement government efforts rather than duplicate them, using government capabilities and local infrastructure.
Global experience and standards
The Shelter Cluster’s local operations in Ukraine are largely based on international experience. In all previous humanitarian crises (from Syria to South Sudan), the Shelter Cluster has coordinated global standards for housing assistance. These standards include minimum requirements for shelter provision, energy efficiency of buildings and the special needs of vulnerable groups. The experience gained from past operations allows Ukrainian organisers to quickly adapt effective solutions, such as modular rapid-build housing systems or proven cash payment schemes for repairs. In addition, working under the auspices of the Global Shelter Cluster, Ukrainian coordinators have access to international references, training courses and technical support from specialists from other countries. This ensures consistency of approach and unified best practices in extremely challenging conditions.
The authority of the UN Shelter Cluster in the world is based on the fact that it acts as a “platform for partnership” with targeted coordination. In Ukraine, this model has made it possible to quickly mobilise 192 partners and provide emergency assistance to over a million people. Despite the difficulties of war, the Shelter Cluster continues to develop cooperation with the public sector, readiness to respond to new challenges and update its strategy for supporting the long-term accommodation of displaced Ukrainians.
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