Interwoven resilience: non-state actors and formal institutions in Ukraine’s urban war effort

This article explores the perceptions of an interplay between formal and informal institutions in sustaining Ukraine’s defence and governance during the full-scale Russian invasion. Focusing on three cities—Vinnytsia, Mykolayiv and Sumy—it examines how civil society organisations, business actors, municipal authorities and national-level decision-makers contribute to security-related functions such as direct city defence, wartime governance, material support to the army, financing of military needs, community leadership, coordination of efforts and communication. Using the repertory grid methodology, the article interviews and records the perceptions of civil society leaders and experts on institutional roles and effectiveness under wartime conditions. Findings reveal the centrality of non-state actors, particularly Territorial Defence Commanders and Local Civic Activists, in frontline cities, often compensating for underachieving formal institutions. Municipal authorities exhibit varied performance, excelling in Vinnytsia but struggling in Mykolayiv and Sumy. The article highlights the adaptability of civil society, the limited governing effectiveness of city formal institutions, the exclusion of national-level decision-makers from local affairs, and the critical need for collaboration between all these actors to enhance resilience and address wartime challenges.