In November 2022, Ukrainian forces successfully liberated the right bank of the Dnipro River in Kherson Oblast after enduring eight months under Russian occupation. This significant achievement was met with a challenging situation: infrastructural devastation and a humanitarian crisis. The Kherson Regional Military Administration, established by Ukraine, has been instrumental in restoring public services and normalcy in this combat zone.
The administration, led by Oleksandr Prokudin, shared its insights through regular interactions and interviews. A delegation from Hudson Institute visited Kherson for an on-the-ground fact-finding mission in March 2025. Local officials in regions bordering Russia and Belarus are advised to prepare for potential crises or conflicts to ensure essential services remain operational.
Kherson Oblast is strategically located along the Dnipro River and the Black Sea, making it historically significant. Before the war, it was an important agricultural region with a population of around one million people. As of mid-2025, about 30 percent of Kherson Oblast is under Ukrainian control.
Following liberation, Ukrainian authorities faced extensive destruction left by retreating Russian troops. Despite ongoing threats from shelling and drone attacks, they restored power to critical areas within days. However, transportation remains limited due to destroyed bridges over the Dnipro River.
Lessons learned from Kherson’s experience could benefit other Eastern European regions within NATO that might face similar challenges if occupied by Russia. Key recommendations include prioritizing infrastructure restoration based on urgency, focusing on demining activities as a precursor to rebuilding efforts, and investing in underground shelters for safety.
Officials should develop continuity-of-government plans and conduct civilian capabilities assessments to identify gaps in readiness. Establishing a NATO-certified center of excellence on wartime local governance is also recommended.
Embedding civilian observers with the Kherson Regional Military Administration can provide firsthand experience in military-civil environments. Additionally, investments in local wartime preparedness should count toward NATO defense-adjacent spending targets.
Frontline states are encouraged to map underground infrastructure during peacetime and stockpile combat personal protective equipment (PPE) for public workers who may face combat-like risks. Training programs should be developed to help local government officials operate effectively under active combat conditions.
By learning from Kherson’s resilience against Russian aggression, Eastern European officials can better prepare for potential future conflicts.