The image that documents a destroyed house but cannot open a file
In May 2025, a resident of Nova Poltavka in Donetsk Oblast saw her destroyed house in drone video. She had left the village in April 2022 and returned briefly months later. By the time the video circulated, the settlement was occupied, and she could not film the ruin herself. She filed a police report about the destruction at her current place of residence. Two months later, she told an interviewer, there had been no response.
That account, reported by the Ukrainian outlet Mezha in its analysis of Cabinet of Ministers Resolution No. 815, captures the central problem this article addresses. The image existed. The destruction was visible. The procedural consequence did not follow. The reason is not that the photograph was inadequate. It is that the registry which must receive the photograph does not operate in occupied territory.
For legal and policy readers, the useful unit of analysis is therefore not the individual image but the evidentiary chain: the sequence of documents, custodians and digital systems through which a photograph becomes a compensable fact. Each link has a failure mode. Mapping those failure modes is more actionable than debating photographic standards in the abstract.
What Resolution No. 815 changed, and what it did not
Cabinet of Ministers Resolution No. 815 formalized remote inspection of ruined housing that is inaccessible to its owner in zones of active hostilities. According to Mezha’s analysis, drawing on the assessment of lawyer Natalia Leonidova of the NGO “Together Initiative Group,” the resolution permits photographs, video, satellite imagery and aerial imagery as evidence. The remote inspection act it establishes allows a property to be entered into the Register of Damaged and Destroyed Property (RDZP), which Leonidova describes as a key condition for receiving compensation or a housing certificate.
The reform matters because it separates the evidentiary question from the physical-access question. Before the resolution, a commission inspection generally required a commission to reach the object. After it, a displaced owner can document destruction through remote materials. The resolution recognizes what displaced people already knew: in a war, the person who owns a house is often not the person who can stand in front of it.
But the resolution’s scope is narrower than its evidentiary flexibility suggests. Mezha reports that it does not cover property left in temporarily occupied territories. And Leonidova’s analysis identifies the operational limit: where state electronic systems — the registries, eVidnovlennia, RDZP — do not function, a destroyed home cannot be entered into the Register of Damaged Property even if the applicant holds evidence. The compensation procedure halts until the system becomes active in that community, whether through de-occupation or restored digital access.
This is the distinction that policy discussion often blurs. Widening the list of admissible image types addresses the supply of evidence. It does not address the administrative reach of the registry that must ingest it. The two problems are separate, and the second is the binding constraint for the most vulnerable claimants.
The evidentiary chain, link by link
UkraineInvest’s helpdesk on compensation for damages caused by Russia’s military aggression sets out the procedural sequence that a damage claim follows. Read alongside Resolution No. 815 and the RDZP framework, it allows the chain to be described in order.
1. The arrival report
The State Emergency Service records the event at the site — shelling, fire, arrival. The owner should obtain a copy of that report. This is the first documentary anchor: it ties a date, a location and an event to an official record. An image taken later, without an arrival report, documents a condition but not necessarily an event.
2. The commission inspection act
Inspection of damaged objects is carried out by decision of executive bodies of village or city councils, or, in their absence, military administrations, through a commission inspection. UkraineInvest states that photo-fixation materials of the object, testifying to the nature and extent of the destruction, must be attached to the commission inspection report. The commission forms the act in electronic form on the Diia portal. Acts are transferred to the holder of the State Register of damaged and destroyed property within one month of creation.
This is the link where the photograph acquires its procedural identity. It is not evidence in general; it is an attachment to a specific act, formed by a specific commission, transmitted to a specific register. Resolution No. 815 adds a remote variant of this step for inaccessible housing, but the output is the same: an act that can enter the register.
3. Entry into the register
The RDZP entry is the gateway. Without it, the compensation decision has nothing to attach to. Leonidova’s point about occupied communities is precisely a point about this link: the act may be producible in principle, but the register cannot receive it where the system is offline.
4. The compensation decision
UkraineInvest describes two forms of compensation for a destroyed immovable property object. The first is provision of funds transferred to a current account with a special mode of use, opened in the recipient’s name, for financing construction of a manor-type house, garden or country house; the procedure for such accounts is determined by the National Bank of Ukraine. The second is financing the purchase of an apartment or other residential premises, including premises to be built in the future, using a housing certificate. The amount is determined per recipient and per destroyed object, based on the object’s total area and the cost of one square metre.
Each link in this chain has a custodian and a failure mode. The arrival report can be missing if the owner did not obtain a copy. The commission act can be delayed or, in occupied communities, impossible to route. The register entry can be blocked by system inoperability. The decision can be constrained by the form of compensation available. A photograph that is excellent for one link may be useless for another.
Where the chain breaks
Three breaks are documented in the retrieved sources, and each has a different policy character.
The registry-access break. This is the occupied-community problem. The evidence exists; the administrative receptacle does not. Leonidova’s conclusion is that the restriction halts the compensation procedure for such territories until de-occupation or restoration of digital access. The policy implication is that effort directed at expanding admissible image types will not reach these claimants. The bottleneck is registry reach, not evidentiary flexibility.
The destruction-only break. Resolution No. 815 relies on proof of destruction. If housing remains intact but is inaccessible because of occupation, the decree provides no compensation mechanism; the fact that the property cannot be used is not by itself a basis for a housing certificate or compensation. This creates a category of loss with no procedural home: the building stands, the owner cannot reach it, and the visual record of “intact but unusable” has nowhere to go. Leonidova characterizes this as a legal gap requiring separate regulation at the level of law or additional changes to the eVidnovlennia program.
The territorial-criteria break. Mezha reports that Andriy Hrudkin, deputy executive director of the NGO “On the Line of Contact,” said his community proposed to a parliamentary committee that the law define and enshrine criteria for territories unsuitable for normal living, which would enable progress toward compensation mechanisms. He said the response was zero. This is an attributed claim by an NGO representative, not a statement of government position, and it should be read as such. But it identifies a real design question: without a legal category for places that cannot be lived in, the compensation system has no way to treat permanent displacement as a compensable loss independent of physical destruction.
The parallel international track
The Register of Damage for Ukraine (RD4U), established under the Council of Europe, opened for claims on 2 April 2024, according to UkraineInvest. Its own homepage describes it as a significant international effort and the first step toward a mechanism that will ensure justice and compensation for Ukraine and its people. On 30 September 2026, RD4U announced that it had opened all claims categories for submission.
The critical procedural fact for evidence planning is stated plainly by UkraineInvest: the Register will not examine or evaluate claims on their merits, assess their value, or order any payments. Those functions belong to a future international compensation mechanism to be established by a separate international instrument.
This means the national file and the international file are not substitutes. The national track produces a compensation decision through the commission and register sequence. The international track produces a recorded claim. A claimant who waits for a national outcome before filing internationally risks losing the evidentiary moment — the arrival report, the contemporaneous photographs, the witness accounts — that the international file will need when a compensation mechanism eventually assesses it. Building both files from the same evidence set, in parallel, is the practical recommendation that follows from RD4U’s non-adjudicative role.
The criminal-accountability track is separate again. The International Criminal Court’s Ukraine situation, ICC-01/22, encompasses any past and present allegations of war crimes, crimes against humanity or genocide committed on any part of the territory of Ukraine by any person from 21 November 2013 onwards, according to the Court’s situation page. The Office of the Prosecutor has established a dedicated portal through which persons holding information relevant to the Ukraine situation can contact ICC investigators. Imagery prepared for a compensation file is not automatically in a form usable for criminal accountability, but the same underlying capture — dated, located, provenance-preserved — can serve both if it is handled with that dual destination in mind.
What this means for how images are captured and kept
The following is practical guidance derived from the procedural structure above. It is not a guarantee of any outcome, and it does not substitute for the specific requirements of a particular commission or registry.
Capture for a destination, not for a gallery. Before photographing or preserving imagery, identify which link the image is meant to serve. An image intended as an attachment to a commission inspection act needs to show the nature and extent of destruction in a way a commission can describe in an act. An image intended for an international claims file needs provenance: when it was taken, by whom, where, and how it reached the claimant. An image intended for a criminal accountability file needs a chain of custody that a court can trace. One image can serve several purposes, but only if its metadata and context are preserved from the start.
Preserve the original file, not only the shared copy. Messaging applications strip metadata. A photograph that arrives through a social channel may be evidentially weaker than the same photograph exported from the device that captured it. Where the original is unavailable, record how the copy was obtained and from whom.
Pair remote imagery with an official event record. A drone video or satellite image documents a condition. The arrival report documents an event. The commission act connects the two. Claimants who hold remote imagery should pursue the arrival report and the inspection route in parallel, including through the remote inspection mechanism where Resolution No. 815 applies.
File internationally without waiting for the national decision. Because RD4U records claims without assessing them, the international filing does not depend on a national outcome. The evidence set should be assembled once and used for both tracks.
Document the inaccessible-but-intact case even though no mechanism currently receives it. The legal gap identified by Leonidova is a gap in regulation, not in the factual record. A dated, located record of an intact but unusable home is the kind of evidence that a future regulation would need. Creating it now costs little; recreating it later may be impossible.
Why the photograph is a policy instrument
The eVidnovlennia system treats the photograph as a procedural instrument. It is attached to an act, entered into a register, and converted into a decision. That is its first value, and it is the value that legal and policy readers are trained to see.
But the retrieved sources point to a second value that is easy to overlook. The Mezha analysis quotes the argument that recording damage is necessary not only to assign compensation but also to maintain the attention of the international community — that if the crimes remain visible, foreign authorities and citizens are more motivated to help, to impose sanctions, and to pursue compensation from the aggressor’s assets. That is an attributed argument, not a measured finding. It nonetheless describes a real function: the same image that enters a national register also enters a public record of destruction that international actors consult.
The two uses should be designed together, not sequentially. An image captured only for the register may lack the context that makes it legible to an international audience. An image captured only for publicity may lack the provenance that makes it usable in a claim. The evidentiary chain and the memory record are not competing objectives; they are two outputs of the same disciplined capture.
The unresolved problems are administrative, not photographic. The registry that cannot receive an image from occupied territory, the compensation logic that has no category for intact-but-unusable housing, and the absence of legal criteria for territories unsuitable for normal living are all failures downstream of the camera. Until they are addressed, the most carefully documented ruin in Nova Poltavka remains, procedurally, a photograph without a file.
Frequently asked questions
Does a photograph by itself establish eligibility for compensation?
No. Under the procedure described by UkraineInvest, photo-fixation materials must be attached to a commission inspection report, and the resulting act must enter the State Register of damaged and destroyed property. The photograph is one link in a chain that includes the arrival report, the commission act, the register entry and the compensation decision.
What image sources does Resolution No. 815 accept?
According to Mezha’s analysis, the resolution permits photographs, video, satellite imagery and aerial imagery as evidence for remote inspection of housing inaccessible to its owner in active-hostilities zones. The resolution does not cover property in temporarily occupied territories.
Can a claimant in occupied territory use remote inspection to obtain compensation?
The evidentiary mechanism may be available in principle, but the register entry is not. Where state electronic systems including eVidnovlennia and RDZP do not function, the property cannot be entered into the Register of Damaged Property even with evidence, and the procedure halts until the system becomes active in that community.
Does filing with the Register of Damage for Ukraine produce a payment?
No. RD4U records claims. It does not examine or evaluate them on their merits, assess their value, or order payments; those functions belong to a future international compensation mechanism established by a separate international instrument.
Is the national compensation file enough for international purposes?
The two tracks serve different functions and are not substitutes. Because RD4U does not adjudicate, the international claim can and should be built from the same evidence set in parallel with the national file, rather than after a national decision.