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Recibido: 2024-10-28 Aceptado: 2024-12-04

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Public administration in the conditions of war: strengths,

opportunities, weaknesses and threats for the period

2014-2024 in Ukraine

Poplavska, Zhanna

Correo: zhanna.v.poplavska@lpnu.ua

Orcid: https://orcid.org/0000-0002-5031-7802

Seniv, Lidia

Correo: lidiia.a.seniv@lpnu.ua

Orcid: https://orcid.org/0000-0003-3088-6108

Humeniuk, Vitaliy

Correo: vitaliy.v.humeniuk@lpnu.ua

Orcid: https://orcid.org/0000-0003-0657-1720

Tryhobiuk, Serhii

Correo: serhii.s.tryhobiuk@lpnu.ua

Orcid: https://orcid.org/0009-0005-6365-3097

DOI: https://doi.org/10.5281/zenodo.14966112

Abstract

The war between Russia and Ukraine has deep historical roots going back to the

Soviet era and beyond. Simplifying things analytically, the current conflict is the

result of historical tensions accumulated over decades, exacerbated to their

maximum expression by the dissolution of the Soviet Union in 1991, and

Ukraine's subsequent aspirations to move closer to the West, as a free and

sovereign nation-state. From the methodological coordinates of SWOT analysis,

together with the hermeneutics of documentary sources carefully sectioned for

their content and value, the aim of this research was to analyze the strengths,

opportunities, weaknesses, and threats of the Ukrainian public administration in

the context of the war, during the period 2014-2024. Among its contributions the

research answers the following questions: 1) How has the capacity of the

Ukrainian public administration evolved to respond to the needs of the population

Department of Theoretical and Applied Economy. Lviv Polytechnic National University, Ukraine

Sección: Artículo científico  2025, julio-diciembre, año 5, No. 10, 92-117

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

Public administration in the conditions of war:

stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

Año 5

, No. 10, julio

-diciembre, 202

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in wartime? 2) What opportunities for reform and modernization has the conflict

presented for the public administration? 3) What are the main structural

weaknesses that the war has exposed in the Ukrainian administrative system? and

4) What long-term threats does the Ukrainian public administration face because

of the protracted conflict? It is concluded that setting clear priorities in the use of

limited resources will ensure that the most critical needs are addressed first, a

mission for which rational choice theory, proper to the economic conception of

democracy, can be very useful.

Keywords: war in Ukraine; public administration; SWOT analysis; critical

thinking; crisis and institutional resilience.

La administración pública en las condiciones actuales de guerra:

fortalezas, oportunidades, debilidades y amenazas para el periodo

2014-2024 en Ucrania

Resumen

La guerra entre Rusia y Ucrania tiene profundas raíces históricas que se remontan

a la época soviética y más allá. Simplificando las cosas analíticamente, el conflicto

actual es el resultado de tensiones históricas acumuladas durante décadas,

exacerbadas a su máxima expresión por la disolución de la Unión Soviética en

1991, y las subsiguientes aspiraciones de Ucrania de acercarse a Occidente, como

un Estado nación, libre y soberano por derecho propio. Desde las coordenadas

metodológicas del análisis FODA, junto a la hermenéutica de fuentes

documentales cuidadosamente seccionadas por su contenido y valor, el objetivo

de esta investigación fue analizar las fortalezas, oportunidades, debilidades y

amenazas de la administración pública ucraniana en el contexto de la guerra,

durante el período 2014-2024. Entre sus aportes la investigación responde a las

preguntas que siguen: 1) ¿Cómo ha evolucionado la capacidad de la

administración pública ucraniana para responder a las necesidades de la población

en tiempos de guerra? 2) ¿Qué oportunidades de reforma y modernización ha

presentado el conflicto para la administración pública? 3) ¿Cuáles son las

principales debilidades estructurales que la guerra ha expuesto en el sistema

administrativo ucraniano? y 4) ¿Qué amenazas a largo plazo enfrenta la

administración pública ucraniana como resultado del conflicto prolongado? Se

concluye que establecer prioridades claras en el uso de recursos limitados

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

Public administration in the conditions of war:

stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

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, No. 10, julio

-diciembre, 202

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garantizará que se atiendan primero las necesidades más críticas, misión para la

cual puede ser muy útil la teoría de la elección racional, propia la concepción

económica de la democracia.

Palabras clave: guerra en Ucrania; administración pública; análisis FODA;

pensamiento crítico; crisis y resiliencia institucional.

Introduction

As Mankof (2022) argues, the war between Russia and Ukraine has deep

historical roots that go back even to Soviet times and beyond. The current conflict

is the result of dialectical tensions built up over decades, exacerbated by the

dissolution of the Soviet Union in 1991 and Ukraine's subsequent (legitimate)

aspirations to move closer to the West, to join the North Atlantic Treaty

Organization, henceforth just NATO, and the European Union EU. In this context,

Putin's imperialist vision of the historical unity between Russians and Ukrainians,

together with his rejection of the legitimacy of the independent Ukrainian identity,

has been a key factor in the escalation of the conflict. Escalating matters, Russia's

annexation of Crimea in 2014 and support for pro-Russian separatists in eastern

Ukraine marked a turning point in relations between the two countries, leading to

international sanctions against Russia and increased geopolitical tensions in

Eastern Europe (BBC News World, 2022).

The geopolitical consequences of this conflict have been far-reaching,

altering the balance of power in Europe and beyond. For these reasons, NATO has

strengthened its presence in Eastern Europe, while the United States and the

European Union have imposed economic sanctions on Russia. Fearing for their

own security, countries such as Finland and Sweden have reconsidered their

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

Public administration in the conditions of war:

stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

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, No. 10, julio

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position of neutrality, opting to join NATO for good

. On the other hand, Russia

has sought to strengthen its alliances with countries such as China, Iran, and North

Korea, thus reshaping the global geopolitical landscape. The conflict seems to

have led to a new "Cold War in the 21st century" between Russia and the West,

with unusual implications for European energy security, regional stability, and the

rules-based international order under international law.

Undoubtedly, the public administration in Ukraine has faced significant

challenges in the context of the war. In this scenario of permanent calamity that

has no foreseeable end, the competencies of the public administration include the

management of essential social services, the implementation of defense and

security policies, and, simultaneously, the coordination of efforts to rebuild

infrastructure destroyed by the invading forces (Darkovich & Savisko, 2024).

However, the institutional capacities of the Ukrainian public administration have

been strengthened by international support and internal reforms, including digital

modernization and the fight against corruption (National Agency of Ukraine on

Civil Service, 2024). Still, the constraints are considerable, including the loss of

control over certain regions, the destruction of critical infrastructure, and the need

to reallocate resources for the war effort.

The overall objective of this research is to analyze the strengths, weaknesses,

opportunities, and threats of the Ukrainian public administration in the context of

In the words of internationalist Sánchez Tapia: "The request for NATO membership formalised on 18 May

by Sweden and Finland before the secretary general of the organisation is nothing more than a manifestation

of the growing concern with which two Nordic nations geographically close to Russia view the war initiated

by Putin. The concern of these two countries about Russian behavior is not new; it goes back, at least, to the

period after the Second World War. Now, however, because of the invasion of Ukraine, it has been reborn

with enough strength to bring about a historic change in their respective strategic cultures, leading them to

knock on the door of an Atlantic Alliance on whose periphery they have remained for decades by their own

choice; always close, but always refusing to cross the threshold of full participation". (2022, par. 2).

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

Public administration in the conditions of war:

stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

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the war during the period 2014-2024. The key questions that emerge from this goal

are: 1) How has the capacity of the Ukrainian public administration to respond to

the needs of the population in times of war evolved? 2) What opportunities for

reform and modernization has the conflict presented for the public administration?

3) What are the main structural weaknesses that the war has exposed in the

Ukrainian administrative system? 4) What long-term threats does the Ukrainian

public administration face because of the protracted conflict?

For the authors of this scientific article, the theoretical utility of this

documentary and qualitative research lies in its contribution to the understanding

of how public administration systems adapt and function in conditions of

prolonged war. From a practical perspective, the study can provide valuable

knowledge for the reformulation of public policies and administrative reform

strategies in Ukraine and other countries facing armed conflicts. When Ukrainian

experiences are analyzed in depth, best practices and lessons learned can be

identified that are applicable to other crisis or post-conflict contexts, as argued by

Aniefiok Titus, Mbon and Ibanga Edem (2024), authors who are of the opinion:

Amid these, the two nations as well as other nations of the world sort

means to ensure that both Russians and Ukrainians, especially the

citizenry are well protected while seeking a lasting solution to the

imbroglio. This required public administration as a tool to be achieved,

and this comparative analysis showed it elicited different responses

from international communities, in a way that saw sanctions meted out

to Russia, while Ukraine received support and succour for the

destruction that went on in its cities where battles are fought. Indeed,

public administration remains the only constant factor at all times.

(Aniefiok, et al., 2024, p. 68)

At the outset, it should be clear that the potential limitations of this research

include the difficulty of accessing up-to-date and fully reliable data in a war

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

Public administration in the conditions of war:

stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

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, No. 10, julio

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environment, as well as the changing nature of the conflict that may affect the

long-term validity of some conclusions. However, these limitations also

underscore the importance of such studies for future research in the field of

wartime public administration. The analysis of the Ukrainian case can serve as a

starting point for comparative and longitudinal studies that examine how

administrative systems can evolve and adapt over time in response to protracted

conflicts.

As will be seen throughout this research, the Russia-Ukraine war, with its

deep historical roots and broad geopolitical implications, has tested the resilience

and adaptability of the Ukrainian public administration. For these reasons, this

study seeks to examine the strengths, weaknesses, opportunities, and threats faced

by the Ukrainian administrative system in the context of the conflict, with the firm

purpose of contributing to theoretical and practical knowledge on public

management in times of crisis. Despite the inherent limitations of research in

conflict zones, this analysis promises to offer valuable perspectives for academics,

policymakers, and public administration practitioners working in war or post-

conflict contexts.

Specifically, the article is divided into five (05) parts: in the first, a review

is made of the main authors who have scientifically researched the war in Ukraine,

with special emphasis on the dimension of public administration; in the second

part, the theories that, due to their epistemological nature, best explain the

functioning of public administration and its institutional architecture; in the third,

the processes that made possible the achievement of the proposed objective are

described; In the fourth section, the main results obtained are analyzed and

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

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discussed. Finally, the conclusions and recommendations of the case are presented,

followed by the references cited in the text, under the APA style.

1. Bibliography consulted on public administration in crisis

scenarios

This section reviews the main academic literature on public administration

in time and crisis scenarios. Specifically, five (05) different works and authors

were selected, located in different disciplines and perspectives of analysis, roughly

pointing out their main contributions and interdisciplinary contributions to this

field of study.

As is logical to suppose, public administration in times of crisis has been the

object of study in various disciplines, highlighting in each case the importance of

effective management in adverse contexts. A fundamental work in this area is

What Drives Successful Administrative Performance during Crises by Moynihan,

authored by Schomaker and Bauer (2020). This scientific publication analyzes

how collaborative networks and knowledge management influence administrative

performance during critical situations. Specifically, the study highlights that

administrations that promote cooperation with other actors, including organized

civil society, tend to perform better in crises, suggesting a shift towards more

horizontal and collaborative models in public management. Among the general

contributions of the research, the following stand out:

 While practitioners often prefer centralized and hierarchical solutions in times

of crisis, this study highlights.

 the potential of reflexive and adaptive use of multifactor networks to cope with

the extraordinary.

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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for the period 2014-2024 in Ukraine

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 Administrations that are prepared and that display a high quality in their

network cooperation with other.

 administrations and with civil society, on average, performed significantly

better in their respective crises.

 Knowledge management and resource sharing—both among administrative

units and with civil society—

 increase organizational ability to perform well in crisis situations.

 Administrations do best when lessons learned in crises are accessibly stored

and when previously successful.

 crisis networks can be quickly revitalized, thus allowing for intercrisis

learning—documentation of best.

 practices during crises—via smart or traditional forms of data storing and

organizational memory keeping—

 further boost the performance of administrations during succeeding crises.

 In the early stages of a crisis, decision makers need to invest in organizational

self-awareness of how.

 challenges are mastered and how insights about optimal coping are best passed

on.

(Schomaker & Bauer, 2020, p. 845)

Another significant contribution comes from the authorship of Peters, Pierre

and Randma-Liiv (2011) and their work Global Financial Crisis, Public

Administration and Governance. Peters et al. examine how financial crises have

led to changes in political control over the bureaucracy and at the same time have

influenced the centralization of decisions within government. Based on

contrasting empirical evidence, this study shows that crises can be catalysts for

organizational change, but they can also perpetuate, under certain conditions, pre-

existing power structures. Either way, his analysis offers a critical perspective on

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ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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how crises affect not only public administration, but also democratic governance

in general.

For its part, the controversial work Public Administration in Times of Crisis,

edited by Kattel, Mikulowski and Peters (2011), compiles various research on the

challenges faced by public administration in contexts of crisis at the international

level. In short, the book offers an overall interdisciplinary approach by including

contributions from scholars from Central and Eastern Europe, addressing topics

such as administrative reform and multiscale emergency response. What is

important is that, for the most part, the essays collected here highlight how shared

experiences can shape effective strategies for public management during present

and future crises. Therefore, it is clarified that:

Public administration, and the public sector more generally, is always

confronting challenges to its effectiveness and efficiency. Even public

programs that are apparently simple, pose interesting and complex

issues about designing and administering policies. Likewise, simply

managing large, complex structures for delivering public programs can

be difficult, and can require highly capable and skilled public managers.

Further, as governments have begun to utilize a variety of alternative

methods for delivering public services the managerial and policy

challenges have tended to increase. (Kattel, Mikulowski, & Peters,

2011, p. 7)

In this vein, Peter Haas (Haas, 2016), in his lecture Good neighbors,

responding first in disasters, emphasizes the crucial role of communities in

disaster response. Although not a traditional academic text but a YouTube video,

his insights on community preparedness and resilience offer valuable theoretical

and practical lessons on how informal structures can complement government

efforts during a given crisis. Haas is right to argue that a well-prepared community

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ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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can act quickly and efficiently, which is essential to mitigate the negative effects

of any crisis.

Finally, Sarumi's (2021) report, The Effect of Diplomacy on Strategic Crisis

Management, presents for debate and discussion a theoretical framework to

understand how strategic diplomacy can influence crisis management in the field

of international public management. This study underscores the importance of

effective communication and international networking to address complex crises.

Among its contributions, the research highlights how diplomatic approaches can

contribute to better coordination and response to critical situations, which is

essential to ensure the success of any public administration strategy during a crisis.

In summary, the academic literature on public administration in times of

crisis typically includes a multidimensional approach that combines theory and

practice. Beyond their differences, the studies analyzed highlight the importance

of collaborative networks, knowledge management and the active role of

communities in critical situations. Moreover, crises can serve as a catalyst for

reforms and as an opportunity to strengthen existing administrative structures. For

these reasons, research on public administration in times of crisis is useful to

understand how to improve the government's response to the future challenges of

a society marked by high levels of entropy.

2. Theories of greater consensus on institutional functioning and

public administration

It then explains how neo-institutional theory, chaos theory, ecosystem

theory, economic theory of democracy and the theory of continuous improvement

provide, from epistemological positions, interesting cognitive tools to fully

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ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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understand the phenomenon of public administration in the current conditions of

the war in Ukraine.

In the words of Losada and Casas (2008), the neo-institutional theory

originated within Political Science sheds light on understanding public

administration in Ukraine during the war, since its foundations focus on how

institutions influence the behavior of actors within the political and social system.

In the Ukrainian context, this theory helps to analyze how public institutions have

been shaped by the crisis and how these adaptations affect the government

response in terms of the design and implementation of public policies. Aniefiok

Titus, et al., (2024) highlight that institutions must be flexible and adaptive to

respond effectively to the challenges of war, always emphasizing the importance

of legitimacy and public trust in administrative effectiveness. This theoretical

perspective allows us to understand how institutions can evolve in times of crisis

and, even more, how their strength or weakness impacts public management.

Table 1. Theoretical foundations of the research.

Source: prepared by the authors (2024).

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ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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Chaos theory also offers a valuable framework for understanding public

administration in Ukraine during the war, as it emphasizes the unpredictable and

nonlinear nature of complex systems. In this context, the theoretical work of

Bracho Navarro, Caraballo, and Ardila (2015) allows us to interpret how the

decisions taken by Putin's regime have led to unexpected and chaotic results, both

in Russia and in Ukraine. This view suggests that public administrations must be

prepared to adapt quickly to sudden changes and unforeseen situations, which is

useful to maintain stability and efficiency in times of conflict. The capacity to

respond to chaos can determine the success or failure of the public policies

implemented during the war.

In this order of ideas, the ecosystem theory provides a comprehensive look

at how different actors interact within the Ukrainian administrative system during

the war. The article on de Anosov (2024) highlights how innovation ecosystems

can drive growth even in challenging times. This theory emphasizes that, just as

in a natural ecosystem, interactions between business, government, and civil

society are vital to foster a resilient environment that can adapt to the adversities

of the context. In such a way, collaboration between these actors can result in

innovative solutions that strengthen public administration in the face of the

challenges imposed by the war.

The economic theory of democracy by the classic author Downs (1973), is

also relevant to examine how economic decisions affect governance during times

of war. In this sense, the article by Trantidis (2024) entitled Public choice

economics of the Ukraine argues that the economic decisions made by the Russian

regime are influenced by its authoritarian political structure. This hypothesis, in

which every rational decision seeks to maximise its benefits and at the same time

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ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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reduce costs, allows us to understand how economic dynamics can affect both the

behaviour of the government and the response of the Ukrainian public

administration to external aggression brought about by the invading forces. Thus,

the interaction between economics and politics is a key input for designing

effective strategies that ensure not only the survival of the Ukrainian state, but also

its future post-conflict development.

In addition to the above, the theory of continuous improvement is also

applied in the Ukrainian context by highlighting the need for adaptation and

constant learning within public administrations in times of crisis. In this regard,

Jensen, and Hoffman's (2024) report Victory in Ukraine Starts with Addressing

Five Strategic Problems underlines that a proactive strategy is essential to address

the fundamental problems of public administration and ensure an effective long-

term response by the State, as a political and organizational totality of national

life. Essentially, continuous improvement theory emphasizes that even during the

chaos generated by war, there are always opportunities to improve administrative

processes and strengthen institutional capacities. In practice, therefore, the

implementation of continuous improvements can be key to ensuring, on the one

hand, a relative military victory and, on the other, a successful reconstruction of

the country after the conflict.

Undoubtedly, these theories provide a comprehensive epistemological

framework for understanding how public administration is being managed in

Ukraine during this critical period. From institutional analysis to chaotic and

interactive dynamics between differentiated actors, each theory brings unique

perspectives that are basic to addressing current administrative challenges. In

terms of the complementarity of knowledge typical of any interdisciplinary

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Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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approach, the integration of these theoretical positions can facilitate a deeper

understanding of how public administrations can adapt and thrive even in adverse

circumstances, which is vital for the political and economic future of the country

after the conflict with the Russian Federation.

3. Methodological procedures

In this case, documentary research was a useful tool for understanding public

administration in times of war, as it made it possible to collect and, at the same

time, analyze information from academic and official sources on the subject. As

Jurado (2017) points out, this approach is useful when seeking to assess how

public policies and administrative structures have evolved during the conflict in

Ukraine, in the heat of the information collected from different primary and

secondary sources. According to Ledesma Ramos (2022), efficient document

management provides a consistent framework for evidence-based decision-

making, which provides useful data in crisis contexts where accurate and timely

information can influence administrative results.

Together with the documentary methodology, the SWOT analysis is a

methodological and cognitive tool that, due to its versatility, allows the

identification of the strengths, weaknesses, opportunities, and threats of the

phenomenon of public administration in Ukraine during the ongoing war. More

specifically, in the first stage of research, we sought to identify the internal

strengths of the administration, such as institutional resilience and the ability to

adapt to changing situations. This analysis was based on documentary data that

highlighted positive aspects of the administrative system, without ignoring its

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Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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contradictions, such as international support and the structural reforms

implemented to respond to the needs of the present complex moment.

Table 2. Key SWOT Analysis Questions.

Source: Isaac, 2023.

Next, in the second stage of the SWOT analysis, external opportunities that

can be taken advantage of by the Ukrainian public administration are identified.

This includes access to international funds and cooperation with global

organizations such as the UN, NATO or the EU to improve infrastructure and

public services within the overall framework of national security policy that has

been deployed in response to the invading forces. According to Lyudmila and

Anzhela (2022), it should be remembered that these opportunities are crucial to

strengthen the administrative system during and after the conflict, if it is combined

on equal terms with a policy of modernization and democratization of public

administration:

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Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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The modernization of the system of public administration in Ukraine

has been underway since gaining sovereignty and continues to this day.

In 2014, a constitutional reform was carried out to redistribute powers

between the branches of state power. The role of the Verkhovna Rada

and control over the government were strengthened. A “compact

government” responsible to citizens is being formed. (Lyudmila &

Anzhela, 2022, p. 41)

The third stage of the SWOT analysis focused on identifying the internal

weaknesses of the administrative system, such as corruption and inefficient

bureaucracy. Taken together, if not addressed within a peremptory period, these

weaknesses could hinder the country's reconstruction and reform efforts after the

end of the war. Therefore, by addressing these problem areas, strategies can be

developed to improve administrative efficiency and transparency, which is very

important when seeking to legitimize the state, gain public trust, and even more

so, ensure effective government during times of war.

The last stage of the SWOT analysis was an attempt to identify external

threats, such as geopolitical tensions and economic risks affecting Ukraine. These

external factors can negatively influence administrative stability and,

consequently, require the implementation of effective mitigation strategies in

terms of public threat management policies. According to Arbeláez-Campillo and

Villasmil Espinoza (2020), threat analysis allows policymakers to anticipate future

scenarios (prospective vision) and plan appropriate responses to minimize the

negative impact on public administration in general.

Finally, Gadamer's (2004) hermeneutics was used to interpret the results of

the SWOT analysis by providing an interpretive framework for understanding the

deep meaning behind the data collected. Essentially, the hermeneutical perspective

allows us to explore how historical and cultural narratives influence perceptions

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

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Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

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about the strengths, weaknesses, opportunities, and threats identified, much more

so when these factors are expressed in discourses and texts that seek to represent

the urgency of the context. When this interpretive approach is successfully

applied, deeper insights can be gained into how social and historical dynamics

affect public administration in times of war, thus facilitating a more holistic

understanding of the current Ukrainian context.

4. Analysis and discussion of results in SWOT key

Overall, Ukraine's public administration is facing exceptional conditions

due to the ongoing war with Russia, which began in 2014 and intensified in 2022

(BBC News Mundo, 2022). Despite the devastation and chaos, the administrative

system has demonstrated remarkable resilience and functionality. Thus, the

reforms implemented since the Revolution of Dignity and the events of

Euromaidan in 2013 have allowed public institutions and state bodies to maintain

their operation, even under the pressure of an ever-developing armed conflict. In

this context, administrative decentralization has given more power to local

authorities, which in turn has facilitated a more agile response to the needs of the

population. However, the war environment has created significant challenges,

such as the interruption of services and the need to adapt to a context of constant

emergency and complex humanitarian crisis. In this complex panorama, it should

not be ignored that:

The full-scale Russian war of aggression has split Ukraine’s story into

the periods before and after February 24, 2022. Ukraine’s resilience in

fighting for its sovereignty and free democratic future triggered a

tectonic shift in its relations with the EU, granting the country candidate

status. An international coalition, comprising democratic states, has

been formed to support Ukraine and provide it with humanitarian, fiscal

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Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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for the period 2014-2024 in Ukraine

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and military assistance on an unprecedented scale. However, the needs

have remained even higher. (The BTI Transformation Index is a project

of Bertelsmann Stiftung, 2024, par. 1)

In this regard, the strengths of the Ukrainian public administration at the

local level include the ability to respond quickly and the implementation of digital

services. For example, the development of e-government platforms has allowed

citizens to access essential public services in these years of systemic crisis, even

during mass displacement due to war. This innovation, on the one hand, improves

administrative efficiency and, on the other, improves the quality of democracy by

increasing transparency and reducing opportunities for corruption. For Darkovich

and Savisko (2024), local authorities have demonstrated a remarkable ability to

mobilize resources and coordinate efforts with non-governmental and community-

based organizations to address the urgent needs of conflict-affected citizens.

At the regional level, Ukraine has significant opportunities to improve its

public administration during this critical period. The war has fueled increased

international interest in supporting Ukrainian reforms, which translates into access

to financing and technical assistance from international bodies such as the EU. For

example, financial support from the European Union is linked to conditions that

promote administrative and anti-corruption reforms that strengthen democracy

(Jensen & Hoffman, 2024). In addition, the war context has led to greater

collaboration between regions to share resources and best governance practices,

which can facilitate a more successful practice in regional public management.

However, as usual, there are significant weaknesses in the Ukrainian public

administration at the national level that need to be promptly addressed. Corruption

in the government apparatus remains a major and persistent problem that

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ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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for the period 2014-2024 in Ukraine

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undermines public trust in government institutions, as indicated by

noninstitutional theory (Losada & Casas, 2008). Despite efforts to implement anti-

corruption reforms, recent cases have shown that corrupt structures can still

influence critical decisions related to the war effort. But, in addition, as stated by

Jensen and Hoffman (2024), there is a lack of effective coordination between

different levels of government, which can result in duplication of efforts and waste

of resources at critical times, which is highly problematic if one recognizes that:

The optimism that took hold after Ukraine held advancing Russian

columns at bay in spring 2023 has given way to the reality of a longer

war. The Russo-Ukrainian war is now longer and bloodier than 90

percent of all interstate wars in the last 200 years. Once attritional

struggles cross this threshold, they last on average 962 days, or almost

three years. And the end is uncertain. (Jensen & Hoffman, 2024, par. 7)

In general, and as is logical to assume, the most significant threats to the

Ukrainian public administration include continued military aggression by Russia

and the collateral effects of the internal conflict, such as the increase in problems

of all kinds, ranging from the destruction of basic infrastructure to the

demographic weakening of the national population. among others. The Russian

invasion not only poses a direct challenge to Ukraine's sovereignty as an

independent country, but also severely disrupts essential public services and

destabilizes existing administrative structures. On the other hand, corruption can

divert critical resources intended for the country's defense and recovery, thus

severely affecting its ability to respond effectively to external and internal threats.

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ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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Table 3. Quantification of the variables analyzed using the SWOT standard quantitatively.

Source: Authors' elaboration based on ATLAS TI software technology.

After performing the SWOT analysis, we ordered the ATLAS TI software,

in its free version and in Spanish, to quantify the variables worked on a percentage

on a scale of 100%. Consequently, and without wishing to delve into an overtly

quantitative investigation, Table 3, SWOT Analysis of Public Administration in

Ukraine 2014-2024, visually illustrates the interrelationships between the

strengths, weaknesses, opportunities, and threats identified in this analysis.

Strengths with a percentage of 27.8% are contrasted with weaknesses, with a lower

range totaling 16.7%, to show how, despite everything, certain positive aspects

can help mitigate internal problems, while external opportunities, with an average

range of 33.3% can be taken advantage of to further strengthen these institutional

capacities of the State.

At the same time, the graph highlights how external and internal threats,

which together account for a percentage of 22. 2% can have a negative impact,

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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stregths, opportunities, weaknesses and threats

for the period 2014-2024 in Ukraine

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both on the strengths and on the opportunities available, which is ultimately the

best variable accounted for 33.3% by the Atlas in its simple qualitative

quantification exercise.

In summary, the SWOT analysis reveals a complex picture for the Ukrainian

public administration in times of war. While there are notable strengths and

significant opportunities to move towards more efficient and transparent

governance, critical weaknesses and serious threats also persist that require

immediate attention from policymakers. In any case, the institutional resilience

demonstrated so far is encouraging; however, it is imperative to continue working

towards deep structural reforms that strengthen the administrative system and

minimize as much as possible the adverse effects of the current conflict, however

difficult this may be for the State and Ukrainian society.

Conclusions and recommendations

These final reflections reflect the consensus opinions of the authors of the

article, in the heat of the hermeneutics of the sources consulted. First, to maximize

the strengths of the Ukrainian public administration, it is crucial to strengthen

institutions by implementing principles of neo-institutionalism (Losada & Casas,

2008). This implies fostering a participatory and democratic culture that allows

institutions to create lasting values in society. Citizen participation must be

encouraged, ensuring that political decisions reflect the needs and aspirations of

the people, who are, ultimately, the sovereign factor of democracy. Together,

transparency and accountability must be promoted to build public trust and

legitimize government actions.

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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for the period 2014-2024 in Ukraine

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Second, institutional capacity building is another key strategy. This includes

investing in the continuous training of public officials (human talent) to improve

their competence and adaptability to a crisis environment. So, by strengthening its

institutional architecture, Ukraine can create a more resilient environment that not

only resists the onslaught of war, but also fosters long-term sustainable

development. Solid institutions are the strength and fundamental pillar to maintain

governance and governability, even in difficult times for national history.

Third, rationally seizing the opportunities that arise during war is a vital

force in modernizing public administration. Although it may be hard to believe,

every crisis can act as a catalyst to implement the necessary legal reforms that

facilitate the transition to a digital and efficient public administration. In this

context, the digitalization of administrative processes, on the one hand, improves

the efficiency and effectiveness of public management inputs and, on the other,

increases transparency and reduces opportunities for corruption (Transform

Health, 2022). This modernizing dynamic is crucial to ensure that public services

continue to function effectively under the conditions of war.

Fourth, to overcome external and internal threats (objective and subjective),

comprehensive strategies must be developed. Much more so when facing the

threat of the invading army requires effective coordination between the armed

forces and civilian institutions, ensuring a unified and efficient response from all

levels of government, as Jensen and Hoffman (2024) assume. Internally,

combating corruption requires strict control and auditing policies, along with

severe penalties for those who violate these rules. The promotion of an ethical

culture within the public service is the condition of possibility to mitigate this

social problem.

Clío. Revista de Historia, Ciencias Humanas y Pensamiento Crítico

ISSN: 2660-9037 / Provincia de Pontevedra - España

Poplavska, Zhanna

Seniv, Lidia

Humeniuk, Vitaliy

Tryhobiuk, Serhii

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Fifth, the lack of human resources (human talent) and financial resources

can be addressed through strategic alliances with international organizations and

foreign partners willing to provide financial and technical support, to strengthen

national sovereignty. Consequently, establishing clear priorities in the use of

limited resources will ensure that the most critical needs are met first, a mission

for which the theory of rational choice, typical of the economic conception of

democracy (Downs, 1973), can be very useful. Similarly, fostering an environment

conducive to foreign investment can help stabilize the economy and provide

additional funds for administrative development.

To conclude, from the general framework of these reflections, four concrete

actions emerge, in the form of recommendations, that may be of some practical or

theoretical use: 1) Strengthen citizen participation mechanisms to ensure that

public policies truly reflect the needs of the people; 2) Implement digital

technologies to improve administrative efficiency; 3) Develop international

alliances to secure financial and technical resources and; 4) Promote an ethical

culture within the public service to effectively combat corruption. These

recommendations, among others, can guide both future researchers and

policymakers in their efforts to improve public administration in crisis contexts.

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Conflict of interest and originality declaration

As stipulated in the Code of Ethics and Best Practices published in Clío Journal,

the authors, Poplavska, Zhanna; Seniv, Lidia; Humeniuk, Vitaliy and Tryhobiuk,

Serhii, declare that they have no real, potential or evident conflicts of interest, of

an academic, financial, intellectual or intellectual property nature, related to the

content of the article: Public administration in the conditions of war: stregths,

opportunities, weaknesses and threats for the period 2014-2024 in Ukraine, in

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