Shelters in Ukraine: Where Billions from the Budget Go and Why Fines Are Minimal
The situation with shelters and civil protection in Ukraine during the war raises numerous questions related to the quality of shelters, their funding, and the responsibility for maintenance. The Constitution and laws of Ukraine obligate the state to ensure the civil protection of the population. In response to these challenges, the Cabinet of Ministers of Ukraine approved the Strategy for the Development of the Civil Protection Structure Fund for the period until 2034 on March 4, 2025.
Billions of hryvnias are allocated from the state budget and international aid for the maintenance of shelters. It is known that on November 27, 2025, the inauguration of the 'Coalition of Shelters for Ukraine' took place, indicating an intensification of actions in this area. Additionally, the European Union, as well as countries including Finland, Lithuania, Belgium, Sweden, and Ireland, announced grants totaling 22 million euros. The EU Ambassador to Ukraine, Katarina Maternova, noted that 140 million euros have been allocated for the development of shelters.
Funding for Shelters and Responsibility
Kyiv allocated 1.5 billion hryvnias in 2025 for the construction of shelters and 831.6 million hryvnias for capital repairs. According to official sources, the total number of civil protection facilities in the territories controlled by Ukraine is 62,655. At the same time, 85.3% of these facilities are ready for use.
However, despite significant financial investments, there is a problem regarding responsibility for the improper maintenance of shelters. Fines for officials for violating the conditions of shelter maintenance, according to the Code of Ukraine on Administrative Offenses (CAO), Article 88-1, range from 850 to 1700 hryvnias. This raises questions about the effectiveness of control and punishment for violations in the field of civil protection, as such amounts appear minimal compared to the billions allocated.
The order of the Ministry of Internal Affairs 'On Approving the Requirements for the Maintenance, Arrangement, and Operation of the Civil Protection Structure Fund' dated 09.07.2018, No. 579, also emphasizes the importance of following the norms in this area.
Nevertheless, despite legislative initiatives, the real situation with shelters in Ukraine remains complicated and requires further improvement of control and accountability mechanisms.
In the current situation, it is important not only to secure funding for shelters but also to effectively implement control over their maintenance. High budget expenditures require proper management and accountability from officials to ensure the safety of the population. Further steps by the government and local authorities should be aimed at improving control mechanisms and strengthening responsibility for violating civil protection norms.