Summary of Participatory Assessments with internally

displaced and conflict affected people in Ukraine

APRIL – JUNE 2015

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BACKGROUND

KEY FINDINGS

This document summarizes the findings of eight Par-ticipatory Assessments (PAs) comprising of more than 400 focus group discussions held with inter-nally displaced people (IDPs), with members of the communities which host them and conflict affected people conducted between April and June 2015.

During the discussions people explained in their own words the protection risks and unmet rights which they currently face as a result of displacement. In-terview teams consisted of trained staff and volun-teers from government, NGOs and the United Na-tions community.

Focus groups were held in Dnipropetrovsk, Donetsk, Luhansk, Kharkiv, Kyiv, and Zaporizhzhia regions. De-tailed reports for each of these locations are avail-able. Given the high concentration of internally dis-placed people, sub-reports specific to Mariupol and Sievierodonetsk have also been prepared. Sessions

Freedom of movementThe real impact of the Temporary Order on Control of the Movement of People, Transport Vehicles and Cargo along the Contact Line in Donetsk and Luhansk regions (Temporary Order) was detailed during focus group discussions. In brief, displaced people, particu-larly adults, cited confusion, frustration and in some cases fear regarding all aspects of the complex pro-

cess of passing to and from the non-government controlled area to the government controlled area.

Concerns raised include: (i) the pass permit system, including long waiting times, lack of transparency and

were held not only within communities, but also in collective centres, bomb shelters, and modular cen-tres in government and in non-government con-trolled areas. Both rural and urban locations were visited.

The results presented below offer analysis which is specific to the age, gender and diversity of the peo-ple interviewed. Understanding risks faced by people which are specific to their situation is critical to the design of response programming which is both ef-fective and appropriate.

UNHCR re-affirms that internally displaced people must be at the centre of decision making regarding their own protection and welfare and expresses ap-preciation for all people who assisted with this pro-cess. This overview is a summary text only. Detailed findings for each of the eight locations mentioned above are available separately upon request.

difficulty in applying from the non-government con-trolled area; (ii) lack of knowledge of where and how to cross; (iii) long distances between checkpoints, including while passing through territory between checkpoints; (iv) long delays at government check-points, sometimes for many days; (v) lack of recep-tion after crossing the line of contact.

In some locations, internally displaced people stated a perceived requirement to turn to informal and unofficial chan-nels in order to receive a pass. Others stated interest in following routes which avoid checkpoints in order to cross. Chil-dren spoken with in the non-government controlled area in April 2015 mentioned concerns regarding their high school ex-aminations.

Real impacts upon people include the inability to flee, lack of access to goods and services, lack of access to medicine, lack of access to pensions, and lack of access to education.

“To see our families, it is a very expensive, dangerous and illegal journey. It took me three days to travel with my children from Chernukhino and I have to pay UAH 2,500 All the money that I have”, a displaced woman from Luhansk region

Access to housingIn accordance with the IDP law, internally displaced people are entitled to free temporary accommodation for a period of up to six months from the date of registration. For large families, disabled people and the elderly an extension is possible.

Housing concerns include: (i) gaps in housing while dis-placed; (ii) lack of building materials to repair former homes and technical and labour assistance necessary to complete repairs. Some displaced people stated that their original homes were completely destroyed and that they did not know where to turn.

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For example, in Donetsk shelter concerns were related to the fact that many people still continue to live in destroyed houses, bomb shelters and overcrowded collective centres, with some of those living in collec-tive centres being under threat of eviction. IDPs in Donetsk and Sievierodonetsk also reported cases of looting and vandalism of their property. Due to the inability to access adequate accommodation, some families in Sieviero-donetsk had to settle in abandoned houses which re-quire major renovation and insulation. In Zaporizhzhia, landlords reportedly refuse to rent apartments to sin-gle males out of fear that they may have particular political views or may support separatists.

The situation in collective varies from region to region In Kharkiv, Sievierodonetsk, Donetsk and Zaporizhzhia, IDPs residing in collective centers fear evictions and have little guarantee of being able to continue to re-side in the collective centre long-term. In addition, the number of collective centers is insufficient. None of the regions have a common collective center manage-ment system: payments for utilities are set randomly, allocation of space per person is not adequate, and there are no com-mon management standards. In many cases, such as in Kyiv region, many collec-tive centers are located in remote areas, affecting access to services and livelihood opportunities.

Concerns raised with regard to rented ac-commodation in the mentioned locations were in many ways similar: lack of afford-able housing, unwillingness of landlords and real estate agents to rent to IDPs, requirement to pay rent several months in advance and lack of basic items. In Kyiv it was specifically noted that large families and families from the Donbas area face discrimination when finding homes. In all locations it was also noted that following the implementation of Resolution no. 79 on the verification of IDP’s place of residence, many landlords refused to rent apartments to IDPs or even requested them to move out in order to avoid verifica-tion by the State Migration Service. In Dnipropetrovsk,

lack of access to housing for Roma was particularly noted due to ethnicity and large families. In Kyiv and Kyiv region, long-term housing was one of the top priorities identified by IDPs and many stated that un-less a more durable solution for housing is identified, they would have no other option but to return to the non-government controlled area even if the conflict continues. The high cost of utilities represents a sig-nificant financial burden for families, particularly as displaced families often still have to pay for the util-ity costs for their homes in the area of origin. Finally, compensation for damaged property was also raised as a serious issue that requires resolution at the high-est level.

“Why does the government not to initi-ate criminal proceedings against those who took our housing, which we’ve spent a life-time’s earnings for? My wife and I are not in that age to live in a state of uncertainty”, IDP from Donetsk region

Employment and livelihoodsThe adult population is facing enormous challenges finding employment. Many of those able to find work are still not able to provide for all the needs of their family (rent, clothes, food, education, healthcare, etc.). IDPs from the east and especially from Crimea are not able to access bank accounts, property or business at the place of origin and people cannot sell or re-register their property. In Kyiv, where the cost of living is higher

than elsewhere in the country, IDPs are particularly vulnerable, which can give rise to protection risks re-lating to marginalization, engagement in risky coping strategies and susceptibility to fraudulent schemes, etc. IDP job seekers in all locations overwhelmingly report difficulty in finding employment due to discriminatory practices by local employers, often offering lower sal-aries and reduced incentive packages to IDPs.

“We were just few steps from death”, say a couple of retired residents from Zolote. “The rocket landed in the middle of the yard and blasted half of our house”.

Photo: UNHCR Ukraine/M. Pavlovic

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“I have been working for 37 years in a factory in Donetsk. I did not have time to dance, I was work-ing tirelessly. And now when I have finaliy retired, the Government does not pay my pension, which is my right, and I have to live in misery. How is that possible?”, retired IDP woman in Donetsk

“I worked in Popasna, everything is destroyed there now. Here I cannot find a job for more than three months. Employment record remained at the enterprise. It turns out I cannot neither register at employment center, nor I receive finance assis-tance as IDP”, a displaced man in Northern Donetsk

Registration and DocumentationAccess to registration and documentation was reported as a key protection concern, though differences were noted in the locations where PAs were conducted. For example, in Kyiv and Kyiv region, IDP registration as such was not raised as a major concern, while receipt or restoration of other types of civil documents was reported as a prob-lem among the adult population. Resto-ration of various civil status documents often requires the originals or additional documents to be presented from the place of origin, which is often either not possible as people cannot physically access their places of origin or not recognized, as documents provided by the de facto au-thorities in the non-government controlled area are not recognized. Obtaining various civil documentation (in particular certificate of a single parent, disability status certifi-cate, etc.) is difficult due to cumbersome bureaucratic procedures. At the time of the Participatory Assessments, the issue of verification of residence by the State Mi-gration Service was still high on the agen-da and many IDPs shared their concerns that this system creates challenges for

them to access assistance and services. In other loca-tions, such as Dnipropetrovsk, in addition to the above concerns, other issues were raised, including problems faced by Roma who didn’t have birth certificates or

Restrictions of movement affect access to livelihoods in areas such as Donetsk, and Sievierodonetsk where restrictions on the transfer of goods have increased

prices and created a shortage of basic food items. Furthermore, IDPs in eastern regions also complained that their vegetables or live-stock were either damaged or stolen, while prices for seeds and other agricultural items had increased, limiting people’s ability to produce basic food products. In several locations, IDPs aged 50 to 60 years old reported that it is extremely difficult for those who are reaching retirement age to find work as employers prefer to hire younger people. Sin-gle-parent families with pre-school age children have difficulty finding work, especially in areas where pre-

school childcare facilities are unavailable. The employ-ment situation is also highly challenging for IDP fami-lies staying in remote locations which require travel to

potential employers, particularly given low wages and high trans-port costs. Young people and university graduates expressed pessimism about employment opportunities and requested relocation to other regions in Ukraine where there might be more chances to find a job. Changing qualification and skills

in order to adjust to different labour markets is a chal-lenge. Overall, in all locations IDPs complained about

poor quality of government employment centers, with lack of information on available jobs and vocational courses.

A line of cars and busses waiting for inspection at Ukrainian army checkpoint in Artemivsk, Donetsk region.

Photo: UNHCR Ukraine/P.Shelomovskiy

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Access to informationDespite a developed internet system, availability of nu-merous websites and hotlines, access to information was one of the cross cutting issues raised during the Participatory Assessments. In general, information and counseling is a concern, especially for the elderly and disabled. IDPs complained that there is a lot of un-

Durable Solutions Durable solutions were raised as a concern in all loca-tions, particularly in relation to housing and livelihood issues. All groups, especially in Kyiv and Kyiv region, request action from the Government to develop and implement sustainable and comprehensive programs for durable solutions. While many IDPs staying in the regions adjacent to the non-government controlled area consider the option of going back home when the situation is resolved, others do not see this as a

Discrimination and Social Fragmentation Complaints about discrimination and social fragmenta-tion were voiced by IDPs in all locations and in relation to many areas of life: while looking for accommoda-tion, as landlords often don’t want to rent to them; while looking for jobs, with employers reluctant to hire IDPs; those applying for social assistance often hear comments such as “the Government spends too much money on IDPs” and accusations of IDPs “benefiting from the situation”, children in school hear negative comments from their classmates. Such attitudes affect people’s morale and hampers their ability to integrate. In Dnipropetrovsk, IDPs said that they feel “segregat-ed” as citizens. Furthermore, in Dnipropetrovsk minori-ties expressed limited access to employment due to double discrimination as IDPs and as Roma or Jews. In several locations, such as Donetsk and Dnipropetrovsk single men reported that they have faced discrimina-tion due to imputed political opinion. Serious concerns were identified during focus groups with children: IDP

other documents and therefore were not able to register as IDPs, long lines and lack of coordination in the offices of the Department of Social Pro-tection, as well as fear of military conscription. In Donetsk, the main problem reported was an inabil-ity to receive/restore civil documentation, mainly passports, which then further restricts freedom of movement. In Sievierodonetsk, IDPs reported that as many of them left or were evacuated with-out any identity documents, they are not able to register as IDPs. In several locations people also expressed reluctance to register as IDPs as they do not see any benefit in registration, considering that it may stigmatize them and lead to discrimination.

reliable, outdated and conflicting information. It was also noted during the focus groups that national and international agencies should improve their communi-cation and provide up to date and clear information about various assistance programs, including informa-tion about eligibility criteria and complaint mechanisms.

possible option and would like to remain in their cur-rent location. One of the biggest concerns is compen-sation for lost and damaged property which was also discussed in the context of shelter, but also as one of the main considerations for finding durable solu-tions. Many IDPs are aware of the integration strategy that is being developed by the Government, however recognizing the difficult economic situation, have little hope of seeing it implemented in the near future.

children spoke about cases of bullying and name-call-ing in schools and some also felt stigmatized due to financial problems in the family as they are not able to enjoy the same after-school activities as other chil-dren. There have been challenges for some children to adapt to new schools, in particular if they have attended mainly Russian speaking schools in the area of origin. There have been disturbing reports from Donetsk focus groups about conflicts between ado-lescents, who found themselves in a situation when they had “to choose sides”. The situation of children is a mirror image of the social tension among adults, for example during some focus groups in Kyiv region, there were cases when IDPs would start arguing with families who maintain contact with their relatives in the non-government controlled area and in Crimea, con-sidering that those who remain behind are opposed to the Government.

“Being a person that has experienced blocking of bank cards and impossibility to sustain own livelihood, I do not trust banking system in our country, moreo-ver I am a wheelchair user and it is dif-ficult for me to move around. If after 3 months I have to move again, shall I once again transfer my pension benefits? Why complicate things? I am entitled to my pension, I have worked for so many years”, disabled IDP from Horlivka, Donetsk region.

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Access to healthcarePoor health conditions, chronic illness, lack of state planning and budgeting for special treatment of dia-betes, HIV/AIDS and TB: these issues were raised by various groups of IDPs in all locations, mainly by the elderly, disabled and those with small children. A spe-cific need for insulin is being raised among people living with diabetes, while lack of HIV retroviral medication

was raised in Dnipropetrovsk and Kyiv. High prices for other medication, lack of reduced prices for vulner-able groups, and the need for continuous treatment for those with chronic illnesses was also highlighted in many PA groups. Mental health and the need for psy-chosocial support was specifically mentioned for chil-dren who witnessed conflict or experience trauma due to displacement. People living in remote areas are often

not able to access specialized treatment due to the dis-tance and high transport costs. Continuous problems in the social system, inability to benefit from treatment in sanatoria and lack of or limited assistance to elderly and disabled people leaves many IDPs without proper medical attention. In Donetsk, the situation is further worsened by the fact that delivery of medical supplies

to the non-government controlled area is limited or delayed and there are loca-tions where there is no ambulance service at all. Due to poor shelter and sanitation conditions in collective shelters in Kharkiv, Donetsk and other locations, there have been health issues reported. There was an increase of pregnant women arriving in Sievierodonetsk, with the number of births almost tripling due to pregnant women

travelling from the non-government controlled area in order to be able to give birth and most importantly obtain birth certificates in the government controlled area. Despite the fact that health care is to be provided free to all citizens of Ukraine, all groups complained that unofficial payments in hospitals have been and continue to be a regular routine.

“Medicines are needed urgently, we did not know who to turn for help to, so we are just pooling some money ourselves to buy medicines for those that need them the most”, а displaced man in Sievierodonetsk

Mental healthDisplacement has reportedly led to trauma, stress and mental health issues, in particular in Donetsk. IDPs stated that they are not accustomed to seeking psy-chological help and are reluctant to do so. Many are also demoralized because of the destruction of their homes and lack of assistance from local authorities.

Child protection and educationThe protection concerns of IDP children are relat-ed to other protection risks, including registration, freedom of movement, shelter, etc. PA results from Dnipropetrovsk report child protection concerns linked to family separation, including access to reg-istration and social benefits, access to education and health of separated children. Access to registration for separated children represents one of the main protection risks in all locations and was reported by all groups. Families in Kharkiv stated that educational institutions in the non-government controlled area are reluctant to provide children with academic doc-uments, hindering access of children to education facilities. A severe shortage of places in kindergar-tens and pre-schools was reported by IDP families with children aged 3 to 6 years. Parents shared con-cerns regarding lack of transparency and additional payments for kindergartens. In other locations, such as Kyiv IDPs were prioritized over host communities

Social fragmentation, family separation, economic problems and an unclear future affects IDP’s mental state, which can lead to tension and conflict, espe-cially in areas with a of high concentration of IDPs, such as collective centers.

for kindergarten places, which created tensions with the host communities. With regard to primary and secondary school education, parents noted a dete-rioration in school performance of their children, and complained about indirect costs that they have to cover for the schools. Families are not able to afford extracurricular activities or tutors. School children shared their experience of feeling discriminated by their fellow classmates. Parents of graduate school students both from Crimea and Donbas expressed their concern about their children’s future admission to universities, and specifically the lack of a quota for Crimeans in universities in Ukraine. University stu-dents reported difficulties with transfer universities in the government controlled area. Military presence and concerns related to the non-civilian nature of displacement were specifically reported in Donetsk region. There have been reports of minors at risk of military recruitment in Donetsk. Furthermore, the

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Social protection and basic needsAccess to social services, addressing basic needs and “making ends meet” is a daily struggle for a sig-nificant number of IDPs. While the Government has made efforts to support the displaced population by adopting relevant legislation and allocating available resources to provide financial assistance, the needs of the population, many of whom fled with little or no belongings, remain high. Moreover, in all locations de-lays of payment of state social assistance have been reported. Adults, in particular those reaching retire-ment age, expressed feelings of being abandoned, many stated that they have worked all their life to achieve a certain level of wellbeing and now have had to leave behind all that they have earned with many years of hard work. The overall economic situ-ation, the fall of the exchange rate of the hryvnia, an increase of prices for basic items as well as utili-ties has significantly affected the entire population and in particular those displaced and affected by the conflict. Displaced people are not able to access their bank accounts or sell their property. Basic household items remain in need among IDP families. High prices of goods and a limited choice of items lead to lack of basic hygiene items and non-food items (NFIs) which was reported in Donetsk. In other locations, IDPs also lack clothes and basic household items, most of which do not fall into the standard NFI packages provided by UNHCR and other organizations and often can be only provided by private donations and volunteers.

With regard to humanitarian assistance and in addi-tion to lack of information and clear criteria by hu-manitarian agencies which was mentioned in the sec-tion on access to information, IDPs also complain that assistance often does not reach remote areas. IDPs of working age who do not have any health issues or meet other vulnerability criteria and IDP men also

noted that they are being left out of assistance dis-tribution as they are not considered vulnerable and it is presumed that they are working. They recommend that assistance activities should also take into account categories that do not meet the traditional vulner-ability criteria. In Kyiv, IDPs also shared their concerns that they hear of more support being provided in the regions close to the contact line while their needs and problems are not heard.

issuance of birth certificates for children born in the non-government controlled area and Crimea which were then not rec-ognized in government controlled areas of Ukraine was specifically highlighted as a child protection concern.

People displaced by the conflict in Ukraine search through donations of second-hand clothes at a transit center in the city of Dnipropetrovsk. Aid at the center comes in the form of blankets, hygiene kits and second hand clothes. Nearly 80,000 people are now registered as IDPs in Dnipropetrovsk.

Photo: UNHCR/A.McConnell

Tetyana from Donetsk (right) and Lyudmyla from Luhansk region (left) spend their usual days in a temporary center for displaced people from the conflict affected area in Kharkiv. High costs of living, lack of access to humanitarian assistance and delays in social benefits impact health and wellbeing of the most vulnerable: mothers with children.

Photo: UNHCR Ukraine/Y.Chalov

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To facilitate access to legal assistance and counseling:

The Government should ensure quality implemen-tation of the law on free legal aid;

International and national organizations to strengthen and improve legal assistance and counseling;

The Government, international organizations and NGOs should improve coordination and referral of legal cases.

To improve the socio-economic situation of IDPs:

The Government and humanitarian/development organizations should seek to assist IDPs in becom-ing self-reliant;

Advocacy and capacity building measures should be taken to enhance IDPs’ access to private and public services and institutions (employment cent-ers, volunteer initiatives and specialized NGOs) that can boost livelihood development and self-reliance;

The Government, international organizations and NGOs should develop livelihood strategies tailored to the needs of different groups of IDPs;

Material assistance to IDPs should remain as an option and be designed in a way that leads to self-sufficiency.

To improve access to and quality of services:

Ensure access to free and quality health services for IDPs;

Ensure access to pre-school, school and higher education for IDP children;

The Government, international organizations and NGOs should improve access to psycho-social support and services, particularly for the elderly and children.

To finalize the development and ensure implementa-tion of the durable solutions strategy:

Solutions strategy should include consideration for integration and return, ensuring appropriate infor-mation dissemination on both options;

Advocate for adoption of relevant legislation to ensure compensation for lost and damaged prop-erty;

Ensure access to banks and financial services for IDPs;

Ensure access to housing, including social hous-ing, development of long-term housing solutions as well as rehabilitation/restoration of damaged houses.

Participatory Assessment has been an important tool in engaging with IDPs as well as strengthening collabora-tion with government and public organizations working in the humanitarian sphere.

Protection concerns raised in this report are not ex-haustive and each location is characterized with its own particularities. For more information on the protection situation in Dnipropetrovsk, Kharkiv, Sievierodonetsk, Donetsk, Kyiv and Kyiv region, additional PA reports are available. It should be kept in mind that the Partici-patory Assessments in these locations were conducted between April and June 2015 and many developments, both positive and negative, have taken place since then. This report summarises the most commonly reported and long standing issues.

As part of the Participatory Assessment process, UN-HCR and partners have asked IDPs to come up with recommendations on possible actions to address their concerns. In each particular location specific sugges-tions were voiced by IDPs, the most common have been summarized below:

To improve access to information at all levels:

Relevant government authorities should ensure easily accessible and clear information on legislative developments affecting IDPs, provision of clarifica-tion and counseling on procedures and regulations;

Humanitarian actors, social organizations and pub-lic institutions should develop communication with communities strategies and ensure that informa-tion on assistance programmes is made available in a friendly and accessible manner.

To improve coordination in order to ensure effective protection and delivery of assistance:

Humanitarian actors must ensure the Do No Harm approach is present in all aspects of their program-ming;

Assistance should reach people wherever they are located, be designed to address the actual needs and be appropriately distributed in all regions host-ing IDPs.

To consolidate advocacy efforts to improve legis-lative framework concerning IDPs:

Advocate on lifting restrictions on freedom of movement of people and goods;

Harmonize legislation and relevant implementation resolutions with regard to registration, documen-tation and access to services.

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