Technical guidance note on cash assistance for Explosive Ordnance Victims

1. Who is the Danish Refugee Council?

Founded in 1956, the Danish Refugee Council (DRC) is a leading international NGO and one of the few with a specific expertise in forced displacement. Active in 40 countries with 9,000 employees and supported by 7,500 volunteers, DRC protects, advocates, and builds sustainable futures for refugees and other displacement affected people and communities. DRC works during displacement at all stages: In the acute crisis, in displacement, when settling and integrating in a new place, or upon return. DRC provides protection and life-saving humanitarian assistance; supports displaced persons in becoming self-reliant and included into hosting societies; and works with civil society and responsible authorities to promote protection of rights and peaceful coexistence.

DRC has had an uninterrupted presence in Ukraine since 2014 supporting the humanitarian response to the conflict from 2014 in Luhansk and Donetsk oblasts, eastern Ukraine. Since 2022, DRC is active across four of its core sectors in Ukraine – Protection (including PSS, case management, legal aid and GBV), Shelter and Settlements, Economic Recovery (including multi-purpose cash assistance and distribution of non-food items), as well as Humanitarian Disarmament and Peacebuilding (HDP). Within its HDP portfolio, DRC is the only organisation in Ukraine implementing four humanitarian mine action (HMA) pillars: Humanitarian Demining, Explosive Ordnance Risk Education (EORE), Victim Assistance (VA), and Advocacy. DRC also founded the Victim Assistance Technical Working Group (VA WG) and has been co-chairing it since 2023. The overall objective of the VA WG is to improve policies, structures and opportunities for survivors of explosive ordnance (EO) accidents in Ukraine. It also contributes to a comprehensive and standardized response, while coordinating respective activities through collaboration with other relevant ministries and actors, including EO victims representatives, survivor organizations and organizations for people with disabilities.

Currently, DRC has seven offices in eastern, northern, and southern Ukraine (areas offices in Kharkiv, Dnipro, Kyiv, Chernihiv, Mykolaiv and base offices in Sumy, Kherson, Zaporizhzhia, Sloviansk, Ivankiv, and Ichnia) with over 800 staff and scaling up activities across all sectors and areas of operations.

2. Purpose of the consultancy

The DRC, based in Ukraine, is seeking a consultant to develop a guidance note on cash assistance in Victim Assistance in Ukraine including recommendations on determining the amount of financial assistance, payment modalities, the eligibility/ selection criteria for individuals affected by explosive ordnance (EO) as well as training requirements for VA implementers. This initiative aims to create a unified approach to providing financial support to EO victims as part of VA. The guidance note will be disseminated to VA implementers and serve as a deliverable of the VA WG.

3. Background

Amid the ongoing humanitarian crisis, the latest report from the UN Human Rights Monitoring Mission in Ukraine (HRMMU)1 as of February 2025 reveals the devastating toll on civilians. In December February 2025 alone, 123 civilians were killed and 567injured. While the numbers constitute a 24 per cent decrease from January 2025 (148 killed; 761 injured), they are a 35 per cent increase compared with February 2024 (153 killed; 359 injured). Since February 24, 2022, the total number of civilian casualties from explosive weapons has reached 42,505, including 12,737 deaths and 29,768 injuries.

According to the Secretariat of the National Mine Action Authority (NMAA)2, 1,171 civilian casualties from mines and explosive remnants of war (ERW) have been recorded since February 24, 2022, including 337 deaths and 834 injuries.

However, these figures only scratch the surface of the true human cost. Many incidents remain unverified, especially in regions experiencing ongoing hostilities. The actual numbers are likely much higher, emphasizing the urgent need for international attention and assistance.

Even if the war were to end tomorrow, explosive ordnance (EO) would remain a significant threat, continuing to endanger lives and limbs. With the increasing contamination of territories by EO, the number of people with disabilities—caused by accidents, bombings, and shelling related to explosive ordnance or the war in general—is expected to keep growing.

The ongoing conflict in Ukraine has resulted in widespread civilian casualties, with explosive ordnance (EO) being one of the primary causes of death and injury. In December 2024 alone, 578 civilian casualties were recorded in Ukrainian-controlled areas. The highest number of casualties occurred in Kherson and Donetsk regions, where 78% of EO-related incidents took place.

The increasing contamination of Ukrainian territory with landmines, unexploded ordnance (UXO), and ERW continues to pose a long-term threat to civilians, even after active hostilities subside.

Among the most affected groups are:

• Children, who face life-threatening injuries and long-term disabilities due to accidental encounters with EO.
• Elderly individuals, who accounted for 45% of civilian fatalities in December 2024 alone.
• Residents of frontline regions, particularly Kherson, Kharkiv, and Donetsk, where 80% of EO-related casualties have been recorded.
• Port workers and transportation sector employees, affected by targeted attacks on seaports and critical infrastructure.

EO survivors often require lifelong medical care and rehabilitation, including amputations, prosthetics, reconstructive surgeries, and physical therapy. Psychological trauma is also a significant concern, as many victims suffer from post-traumatic stress disorder (PTSD), anxiety, and depression.

Beyond health challenges, EO victims face significant socio-economic barriers, including:

• Loss of employment and income, particularly for those who become permanently disabled.
• High medical expenses, with rehabilitation and prosthetic costs often exceeding victims’ financial capacities.
• Discrimination and social stigma, which limit reintegration into the workforce and society.

Ukraine is a signatory to several international agreements requiring the protection and assistance of EO victims, including:

• The Anti-Personnel Mine Ban Convention, which mandates state parties to provide medical care, rehabilitation, and socio-economic support for mine victims.
• The Convention on the Rights of Persons with Disabilities (CRPD), whichguarantees the rights of persons with disabilities, including those injured by EO​.

Despite these commitments, funding for VA remains insufficient, and national programs often lack the capacity to meet the growing needs of survivors. A comprehensive and standardized approach to financial assistance is necessary to address gaps in current victim support systems, ensuring timely and effective aid​ for EO survivors.

Given the scale of injuries and financial hardships faced by EO victims, the Danish Refugee Council (DRC) aims to develop a clear framework for cash assistance to ensure:

• Well-defined eligibility criteria, prioritizing the most vulnerable groups.
• Adequate assistance amounts, reflecting the actual costs of medical treatment, rehabilitation, and other socio-economic needs.
• Efficient and accessible payment mechanisms, which allows victims to receive aid without unnecessary bureaucratic delays.

By leveraging international best practices and lessons learned from other humanitarian responses, the project seeks to bridge the gap between immediate relief and long-term recovery, ensuring that EO victims in Ukraine receive sustainable and dignified support​.

4. Objective of the consultancy

The purpose of the consultancy is to develop recommendations on financial assistance amounts and eligibility/selection criteria for EO victims, ensuring that support mechanisms are effective, transparent, and aligned with international best practices. The consultancy will assess the financial needs of EO victims, analyse current assistance programs, and propose an optimized framework for financial aid distribution.

This involves a detailed study of the economic impact of EO-related injuries, identifying gaps in current financial support mechanisms, and formulating evidence-based recommendations to ensure that assistance is adequate, timely, and accessible. The consultant will provide recommendations on financial aid structures, eligibility criteria, payment mechanisms, and policy improvements to enhance the socio-economic resilience of EO victims in Ukraine.

In particular, the consultant will:

• Analyse the National and International Legal Framework Related to Financial Assistance for EO Victims. Review Ukrainian legislation regulating financial and social support for people with disabilities and conflict-affected individuals. This includes Law of Ukraine “On Rehabilitation of Persons with Disabilities”, Law of Ukraine “On Social Services”, Law of Ukraine “On Social Protection of War Victims”, regulations on state disability pensions and social benefits, relevant policies under Ukraine’s National Mine Action Strategy.
• Examine international standards related to victim assistance, including: IMAS 13.10 on Victim Assistance, UN Convention on the Rights of Persons with Disabilities (CRPD), Ottawa Treaty (Anti-Personnel Mine Ban Convention), Convention on Cluster Munitions (CCM), best practices from the European Court of Human Rights (ECHR) regarding financial compensation for war victims. Identify gaps in current laws and policies, including inconsistencies with international frameworks, bureaucratic barriers, and inadequate financial allocations.
• Identify and analyse Needs and Barriers for EO Victims. Assess the actual financial burden on EO victims, including medical expenses (surgeries, prosthetics, rehabilitation, long-term therapy), assistive devices (wheelchairs, mobility aids, home adaptations), psychosocial support (mental health services, PTSD treatment), loss of income due to permanent disability or reduced employability, additional costs such as childcare, transportation, and legal fees. Analyse barriers to accessing financial assistance, including bureaucratic obstacles in receiving state benefits, inconsistencies between different support programs, delays in payments and insufficient coverage of actual expenses. Compare financial assistance provided in Ukraine with international best practices, identifying funding gaps and areas for improvement.
• Сonduct Research on Existing Financial Assistance Programs. Map out current humanitarian and government-led cash assistance programs for EO victims, including: state disability and war pensions, humanitarian Cash for Protection (C4P) interventions, programs run by NGOs and international agencies (UN, ICRC, DRC, etc.). Evaluate the effectiveness of these programs, including: Whether assistance amounts meet victims’ actual financial needs. Challenges in eligibility and application processes. The sustainability of existing cash support mechanisms.
• Conduct Surveys and Focus Groups to Gather Beneficiary Insights. Conduct interviews and focus groups with EO survivors of different age groups and injury levels, relatives of EO victims who require financial assistance, medical, rehabilitation, and social workers, humanitarian actors involved in cash assistance programs. Develop a survey to assess financial needs and economic conditions of EO victims, focusing on whether current assistance covers essential needs, which expenses remain unfunded, and what improvements beneficiaries would suggest.
• Develop Criteria for Financial Assistance Eligibility. Define clear eligibility criteria based on severity of injuries (e.g., amputations, mobility impairments, PTSD), economic vulnerability (low income, high medical costs, lack of family support), accessibility to other financial resources (state benefits, NGO support). Propose a tiered assistance system, where beneficiaries receive different amounts based on their financial and medical needs.
• Develop Recommendations for Advocacy and Awareness Campaigns. Outline strategic advocacy actions to: secure government commitment to long-term financial assistance programs, engage international donors in funding sustainable victim support, raise public awareness on the financial challenges faced by EO victims. Design public information campaigns to ensure EO victims are aware of available financial aid programs.

5. Scope of work and methodology

The consultant will conduct an in-depth assessment and provide clear technical recommendations on cash assistance for EO victims. This includes a comprehensive review of national and international legal frameworks governing financial assistance, including Ukrainian legislation on social protection, the UN Convention on the Rights of Persons with Disabilities (CRPD), IMAS 13.10 on Victim Assistance, and existing state disability benefits and humanitarian cash aid programs. The consultant will identify gaps in current financial assistance policies and propose areas for advocacy.

A financial needs assessment will analyse the costs associated with medical treatment, rehabilitation, assistive devices, transportation, psychological support, and income loss. Surveys and focus groups will be held with EO victims to understand financial barriers, and a comparative analysis will be performed to evaluate financial assistance provided in Ukraine against international best practices.

The consultant will map existing governmental and humanitarian-led financial aid initiatives, including state disability pensions, humanitarian Cash for Protection (C4P) programs, and Multi-Purpose Cash Assistance (MPCA) schemes. Gaps, inefficiencies, and best practices in current financial aid programs will be identified to improve program effectiveness. Identifying whether financial assistance mechanisms anticipate long-term recovery and resilience-building, or rely on one-off, short-term coverage.

A tiered eligibility framework for financial assistance will be developed based on severity of injuries and disabilities, economic vulnerability, and access to other financial support. The consultant will also define documentation requirements to ensure transparency and accountability in program implementation.

A standardized cash transfer matrix will be created to differentiate between emergency one-time payments for urgent medical, transportation, or relocation expenses and regular cash transfers for long-term rehabilitation and social reintegration support. Data-driven economic modeling will be used to recommend optimal assistance amounts tailored to the needs of EO victims.

Implementation guidelines will be established for cash distribution, ensuring secure and efficient payment methods such as bank transfers, postal orders, etc. The consultant will define payment frequency, monitoring mechanisms, and compliance with data protection and beneficiary confidentiality principles while ensuring integration with case management services and referral systems.

The consultant will use a mixed-methods approach, integrating desk reviews of laws, policies, and humanitarian response guidelines, stakeholder consultations with government agencies, NGOs, surveys and focus groups with EO victims to understand financial needs, and a comparative analysis of best practices in cash assistance programs. This will ensure that the guidance note is evidence-based, practical, and aligned with international standards.

The сonsultant is expected to develop and submit the following tools for DRC approval:

• Survey questionnaires (for victims, family members, service providers);
• Focus group discussion guides (segmented by target groups: age, location, profession);
• Key Informant Interview (KII) protocols;
• Consent forms and data privacy protocols.

These tools must be inclusive and accessible for persons with various disabilities and available in both English and Ukrainian.

The consultant will produce an inception report outlining the work plan, methodology, and draft tools for data collection, along with a review of existing literature and data sources. An interim report will be submitted summarizing findings from legal and financial assessments and providing preliminary recommendations on eligibility criteria and cash transfer values.

A final report will be developed to include a comprehensive technical guidance note, defining vulnerability criteria and the eligibility framework, transfer value recommendations and justification, and operational tools for implementers and donors. It will also outline the monitoring, evaluation, and learning framework for program effectiveness assessment. The consultant will present the findings to key stakeholders and donors to facilitate discussions and potential refinements.

Present findings and recommendations to key stakeholders, DRC teams and relevant employee groups and potentially external stakeholders (e.g. in the Victim Assistance Working Group). A stakeholder discussion will be facilitated to gather feedback and refine recommendations.

The consultant will be required to prepare a detailed methodology and work plan indicating how

the objectives of the project will be achieved, and the support required from DRC.

6. Deliverables

The Consultant will submit the following deliverables as mentioned below:

Phase 1: Kick-off

• Expected Deliverables:
  • Agree on a work plan (to be approved by DRC)
  • Develop methodology and relevant documents/plans/questionnaires in English and Ukrainian (to be approved by DRC)
  • Submit inception report to DRC
• Maximum Expected Timeframe:
  • Within max. two weeks of the start of the contract

Phase 2: Research and Data Collection

• Expected Deliverables:
  • Conduct data collection, interviews with representatives of the target audience, focus group discussions, desk review, etc.
  • Submit interim report to DRC summarizing progress, status, and initial findings
• Maximum Expected Timeframe:
  • Within max. six weeks of completion of Phase 1

Phase 3: Recommendations and Technical Documentation

• Expected Deliverables:
  • Develop recommendations and technical documentation
  • Formulate guidelines for setting eligibility criteria
  • Provide transfer value recommendations
  • Harmonize cash assistance approaches
  • Develop operational procedures for cash distribution, including payment mechanisms, monitoring frameworks, and compliance requirements
• Maximum Expected Timeframe:
  • Within max. three weeks of completion of Phase 2

Phase 4: Final Documentation

• Expected Deliverables:
  • Develop the final report and final product, i.e. guidance note (to be approved by DRC)
  • Edit and finalize the draft as per feedback/comments
  • Finalize report
  • Prepare and hold a presentation of findings and other relevant data in relevant forums (to be confirmed by DRC)
• Maximum Expected Timeframe:
  • Within max. three weeks of completion of Phase 3

Additional Notes:

• All results must be sent to DRC by e-mail in English and Ukrainian.
• All written results are subject to review and approval by DRC.
• The contractor(s) is/are expected to provide documents and responses to letters and comments and reflect relevant changes in all of the above results before they are considered final.
• The contract will have a duration of up to 4 months, beginning from the moment of signing the contract (it’s beneficial if the project can be delivered in a shorter timeframe).
• The schedule will be adjusted according to the final plan of the consultant’s work.

7. Duration, timeline, and payment

Duration, Timeline, and Payment

The total expected duration to complete the assignment will be no more than 4 months and all payments are linked to deliverables.

Phase 1

• Deliverable:
  • Inception report, work plan, and methodology approved by DRC
• Payment:
  • 20% of the total amount
• Maximum Expected Timeframe:
  • Within max. two weeks of the start of the contract

Phase 2

• Deliverable:
  • Completion of data collection and interim report
• Payment:
  • 30% of the total amount
• Maximum Expected Timeframe:
  • Within max. six weeks of completion of Phase 1

Phase 3

• Deliverable:
  • Draft recommendations and technical documentation submitted
• Payment:
  • 30% of the total amount
• Maximum Expected Timeframe:
  • Within max. three weeks of completion of Phase 2

Phase 4

• Deliverable:
  • Final report submitted and presentation delivered
• Payment:
  • 20% of the total amount
• Maximum Expected Timeframe:
  • Within max. three weeks of completion of Phase 3

8. Proposed Composition of Team

Consultancy services may be provided:
By a team of specialists, each covering specific areas such as research on cash assistance across various sectors, protection-related research, needs assessment of different population groups including vulnerable groups and data analysis, legal analysis, stakeholder engagement, and facilitation.

Composition of the proposed team should consist at least of:

• Team Leader/Senior Consultant/Project Manager
• Legal/Regulatory Expert
• Technical Team Members

Please refer to the Invitation Letter RFP-UKR-00342897: Qualification and experience of the proposed team technical criteria (Section B Technical Evaluation of the Invitation Letter RFP-UKR-00342897)

9. Eligibility, qualification, and experience required

To ensure the successful completion of the consultancy aimed at developing Technical Guidance on Cash Assistance for Explosive Ordnance (EO) Victims, the bidder must meet the following eligibility criteria and provide supporting documentation accordingly:

Essential

Academic qualifications:

• At least a Bachelor`s degree in Law/Public Policy for Legal / regulatory expert
• At least a Bachelor`s degree in social policy, economics, humanitarian assistance, international development, or related disciplines for Team Leader / Senior Consultant / Project Manager

Experience:

Proven expertise in cash-based assistance programming: At least three years of demonstrated expertise in cash-based assistance programming, developing and implementing humanitarian cash assistance programs, particularly in post-conflict or emergency settings

Further requirements

Bidder`s Experience on the market:

Proven experience in needs assessments and surveys: Proven experience in conducting needs assessments or similar organisational assessments, for at least 5 years, as well as survey, that demonstrates strong ability to analyse quantitative and qualitative data, produce high-quality reports, and present key findings effectively, using relevant tools and technologies for data processing.

Proven experience in cash-based assistance programming: At least three years of proven expertise in cash-based assistance programming, developing and implementing humanitarian cash assistance programs, particularly in post-conflict or emergency settings, that demonstrates the ability in designing cash transfer mechanisms.

Proven in-country experience: Previous in-country experience in policy and program evaluations that demonstrates the knowledge of social protection systems and vulnerability assessments, including expertise in state-provided social benefits and medical guarantees for EO victims, as well as in-depth knowledge of Ukrainian legislation on the rights of people with disabilities.

Familiarity with Ukrainian legal frameworks governing social protection and international humanitarian standards such as IMAS 13.10, CRPD, and humanitarian cash assistance best practices (will be an advantage)

Previous in-country experience of effective interaction: Previous in-country experience of effective interaction with a variety of stakeholders, government agencies, humanitarian actors, donors, and EO victims, their families, healthcare professionals, educators, employers, etc., that demonstrates cultural competence and sensitivity in working with conflict-affected populations in Ukraine

Qualification and experience of the proposed team:

Suitability of the proposed team: Suitability of the proposed team, which should include at least of: a Team Leader/Senior Consultant/Project Manager, a Legal/Regulatory Expert, and Technical Team Members

With fluency in English and Ukrainian (at least one team member requires to be fluent in both languages)

Team Leader / Senior Consultant / Project Manager: At least 5 years of experience in conducting needs assessments of different population groups, including vulnerable groups, and data analysis, as well as survey-based research focused on cash assistance programs across various sectors; experience in team management; and knowledge of the social protection system

Legal / regulatory expert: At least 5 years of experience of Ukrainian and international law in the field of disability and anti-discrimination, that demonstrates contribution to relevant national or international legal frameworks, social protection, and the inclusion of persons with disabilities (especially on disability rights or EO victim assistance)

Technical Team members: Minimum 5 years of experience for at least one team member in developing methodologies, designing questionnaires, and organizing focus groups, interviews, and data collection among vulnerable population groups.

Minimum 2 years of experience for at least one proposed team member in conducting research focused on cash assistance programs across various sectors and needs assessments of different population groups, including vulnerable groups, as well as data analysis, which demonstrates a deep understanding of the Ukrainian context regarding the rights of persons with disabilities and victims of explosive ordnance (EO) (will be considered an additional advantage).

10. Technical supervision

The selected consultant will work under the supervision of the DRC HDP Programme Manager and DRC HDP VA Specialists.

DRC will provide technical guidance throughout the consultancy. The assigned DRC focal point will:

• Review and approve all tools and deliverables;
• Facilitate access to relevant stakeholders and internal documents;
• Support ethical approval (if required) for engaging with vulnerable groups;
• Provide timely feedback on interim and final reports.

11. Location and support

The DRC Ukraine country office is in Kyiv. The Consultant will provide her/his own computer and mobile telephone. The consultant will comply with all applicable DRC safety rules throughout their work in-country.

12. Travel

The evaluation will be conducted in Ukraine. In case of international experts, a tourist visa for Ukraine will last for three months; a longer (work) visa cannot be provided for the consultant(s). The consultant(s) will have to budget for all travel-related and other costs in their financial bid.

13. Submission process

Please refer to the Invitation Letter RFP-UKR-00342897

14. Evaluation of bids

Please refer to the Invitation Letter RFP-UKR-00342897

How to Apply:

Interested consultants need to submit a request for the tender documents via email to lina.chaplynska@drc.ngo.

Tender Details:

• RFP Published
  • May 14, 2025
• Pre-bid Technical Meeting Date
  • May 19, 2025, 11:00 AM UTC / 02:00 PM Kyiv time
  • Interested suppliers need to confirm participation via email: ukr-procurement@drc.ngo before CoB May 18, 2025
• Closing Date for Clarifications
  • May 21, 2025
• Closing Date and Time for Receipt of Bids/Proposals
  • May 29, 2025, 09:00 AM UTC /12:00 PM Kyiv time
• Tender Opening Date and Time
  • May 30, 2025, 09:00 AM UTC / 12:00 PM Kyiv time
• Tender Email Address
  • tender.ukr@drc.ngo