Climate and Transport Policy in Ukraine: Challenges, Progress, and Post-War Opportunities

There are many discussions surrounding “Build Back Better.” However, there is less discussion about “Built Back Better meeting the Climate Change Policy”.

For example, in the capital of Ukraine, the concentration of nitrogen dioxide in the air exceeded the normal levels by a factor of two and rose five to six times during the summer. The main reason for this is the transportation pattern established in line with soviet standards, which has changed little since Ukraine gained independence in 1991.

Would Ukraine be climate-friendly? Everything depends on us.

In recent months the climate change agenda has noticeably receded in priority. This critical issue has entirely vanished from several public forums and policy discussions. However, the environmental crisis itself continues unabated. The armed conflict in Ukraine has dramatically amplified climate impacts both within Ukraine’s borders and across global systems.

Ukraine found itself unprepared for this complex intersection of war and environmental challenges. Critical regulatory frameworks were absent, including mechanisms for monitoring wartime emissions, assessing the extent of global fossil fuel market disruption, and establishing guidelines for how post-war reconstruction could promote rather than hinder climate action.

Historical Context of Ukraine’s Climate Policy

Before 2022, Ukraine’s economic structure was characterised by high carbon intensity, with energy, industrial and agricultural sectors responsible for 74% of national emissions in 2021. The country experienced significant emissions reductions compared to 1991, though this decline stemmed primarily from economic contraction following the Soviet Union’s collapse and later due to Russia’s annexation of Crimea and the eastern Ukraine conflict rather than deliberate climate policies.

Ukraine’s climate policy framework began taking more substantial form after its 2016 ratification of the Paris Agreement, when it established a 40% reduction target against 1990 levels—a benchmark that permitted significant emissions growth from contemporary levels. During the five years prior to 2022, Ukraine developed a more comprehensive package of climate policies and regulations. Its updated 2030 climate target submitted to the UNFCCC in 2021 aimed for modest emissions reductions compared to 2019 while pursuing economic growth (Conflict and Environment Observatory, 2023).

By mid-2020, Ukraine had announced its intention to align with the European Green New Deal framework, with pre-invasion discussions exploring implementation pathways for this ambitious transition. This alignment had significant implications for transport policy, as European models emphasise sustainable and smart mobility systems and rapid decarbonization of transportation networks (Mission of Ukraine to the European Union, 2021).

Advancements in Climate Policy

A significant milestone was reached in October 2024, when the Verkhovna Rada (Parliament) adopted the Law On the Basic Principles of State Climate Policy. This legislation established a legal foundation for achieving climate neutrality by 2050, aligning with European Union climate objectives and creating a framework for comprehensive strategies across multiple sectors.

According to Article 4 of this law, Ukraine established an interim target of reducing greenhouse gas emissions by at least 65% by 2030 compared to 1990 levels, demonstrating increased ambition in its climate commitments.

One of the major areas to address is transport, which has suffered greatly since the onset of the war and must be redeveloped according to the world’s best practices.

National Transport Strategy 2030

In December 2024, the Cabinet of Ministers of Ukraine approved the National Transport Strategy of Ukraine until 2030 and its corresponding Operational Plan for implementation in 2025–2027. This strategy was notably developed and adopted after the onset of the war, incorporating considerations for the extensive damage to transport infrastructure.

According to the World Bank’s Third Ukraine Rapid Damage and Needs Assessment (RDNA3), as of 31 December 2023, the total sum of damage inflicted on Ukraine’s transport sector was estimated at EUR 30.5 billion, with reconstruction and immediate recovery needs assessed at EUR 66.8 billion. The most significant reconstruction requirements pertain to:

• State roads (29%);
• Railway infrastructure, rolling stock, equipment, and other assets (24%);
• Local roads (16%).

The strategy embraces the “build back better” principle, stipulating that reconstruction of transport infrastructure destroyed or damaged due to Russia’s armed aggression should, where possible, be carried out at a higher quality level. This approach aims not only to restore previous conditions but to create improved infrastructure that contributes to sustainable development and enhanced quality of life.

Key Strategic Objectives

The National Transport Strategy focuses on several priorities:

• Rebuilding Ukraine’s transport infrastructure with enhanced resilience against wartime challenges while aligning with European Union standards;
• Developing railway, road, and inland waterway routes integrated with the Trans-European Transport Network (TEN-T);
• Reducing greenhouse gas emissions from the transport sector by up to 33% compared to 1990 levels, aligning with Paris Agreement and EU climate goals;
• Improving the quality and accessibility of public transportation, including promoting electric transport modes;
• Encouraging cities with populations of over 50,000 to develop Sustainable Urban Mobility Plans (SUMPs) by 2027.

Current Challenges in Public Transport

Despite these ambitious policy frameworks, Ukraine’s public transportation system faces significant challenges:

Lack of Inclusivity

Most public transport (buses, trolleybuses, trams) and intercity passenger services do not meet accessibility requirements, making transportation difficult or impossible for people with disabilities and other mobility-impaired groups. According to the State Statistics Service, while 70.7% of trolleybuses are adapted for people with disabilities, only 9.3% of passenger railway carriages meet accessibility standards.

Limited Bicycle Infrastructure

The level of bicycle mobility development in Ukraine remains insufficient compared to EU member states. The existing bicycle infrastructure network covers approximately 1,500 kilometers, far too limited to ensure safe and comfortable movement for cyclists both within and between settlements.

Connectivity Issues

Many rural areas lack regular passenger connections, a problem exacerbated by administrative-territorial reform that reduced the number of districts, making many settlements more distant from district centres. Furthermore, frontline areas experiencing active hostilities have almost no regular transport connections.

Municipal Responses

Twelve Ukrainian cities, particularly Chernihiv, Chernivtsi, Dnipro, Kalush, Kharkiv, Konotop, Kyiv, Mykolaiv, Novovolynsk, Pervomaisk, Vinnytsia, and Zviahel, have joined the Sun4Ukraine initiative of the EU Climate-Neutral and Smart Cities Mission, committing to developing climate neutrality plans by 2030 (Sun4Ukraine, 2024). They will work with international experts on developing Climate Neutrality Plans.

Sustainable Urban Mobility Plan

In 2019, Lviv adopted the Sustainable Urban Mobility Plan (SUMP). Kyiv has also collaborated with international partners, including GIZ and the European Investment Bank, on the pilot project – Kyiv-Podilsky District SUMP[1], which demonstrates a comprehensive effort to align transportation with climate objectives.

The SUMP is a strategic plan designed to satisfy the mobility needs of people and businesses in cities and their surroundings for a better quality of life. It is one of the important planning documents in the European Union (EU).

The SUMP focuses on reducing private car dependency through infrastructure changes and incentive programs, introducing more electric buses while developing phase-out plans for older diesel fleets; expanding real-time public transport tracking and mobile ticketing systems; and gradually extending cycling lanes and micro-mobility options.

Strategic Pathways Forward

For Ukraine to accelerate toward global best practices in climate-friendly urban transport, several strategic pathways emerge:

Financing the Transition

Ukrainian municipalities face significant financial constraints that limit their ability to implement ambitious climate-friendly transportation initiatives. While SUN4Ukraine and other international programs provide valuable technical assistance, dedicated funding mechanisms for fleet electrification, infrastructure development, and modal shift incentives remain underdeveloped compared to Western European counterparts.

Cities like London have implemented congestion charging schemes that simultaneously reduce emissions while generating revenue for public transport improvements. Ukrainian cities could explore similar innovative financing approaches, potentially accelerated through climate-focused international assistance.

Technology Leapfrogging Potential

Ukraine’s position, undergoing simultaneous reconstruction and climate transition, creates the potential for technological leapfrogging—bypassing outdated intermediate technologies to implement cutting-edge solutions directly.

Conclusion: Opportunity Amidst Adversity

Ukraine’s approach to climate-friendly urban transportation reflects both its unique historical context and forward-looking European aspirations. The convergence of three major transitions—post-war reconstruction, European integration, and climate action—creates an unprecedented opportunity to reimagine transportation systems rather than simply rebuilding what existed before.

While significant gaps remain between Ukraine’s current practices and international leaders, the country’s newly-established climate legislation and inherent urban transport advantages provide a foundation for accelerated progress. The extensive damage to transport infrastructure, while devastating, creates a canvas for implementing climate-aligned transportation solutions from the ground up.

The effectiveness of Ukraine’s climate-transport policies will ultimately depend not merely on frameworks and strategies but on implementation capacity, financing mechanisms, and the ability to integrate climate objectives with broader reconstruction priorities.

The path forward requires sustained commitment to climate objectives even when immediate reconstruction and economic recovery priorities compete for attention and resources. By embracing the “Build Back Better” principle and focusing on long-term sustainability despite short-term pressures, Ukraine can develop transportation systems that meet immediate mobility needs and contribute to climate resilience for generations to come.

The author maintains the position that such a “probably unpopular” decision as limiting private transport usage in the centre, or prioritising trams and cycling over cars, would greatly benefit Ukrainian cities. The starting point for that could be prioritising budget expenses for these areas rather than constructing yet another route for cars.

When preparing reports for the World Bank and other international institutions taking into consideration future reforms in Ukraine, the Ader Haber team and the author always focus on sustainability, and the Climate Change Policy is among them.

Resources:

1. Conflict and Environment Observatory, 2023 – https://ceobs.org/ukraine-conflict-environmental-briefing-the-climate-crisis/
2. Mission of Ukraine to the European Union – https://ukraine-eu.mfa.gov.ua/en/2633-relations/galuzeve-spivrobitnictvo/klimat-yevropejska-zelena-ugoda#:~:text=The%20strategic%20partnership%20will%20focus,and%20other%20synthetic%20renewable%20gases.
3. Law of Ukraine “On the Basic Principles of State Climate Policy”
4. The National Transport Strategy of Ukraine until 2030 and its corresponding Operational Plan for implementation in 2025–2027 adopted by Resolution No. 1550 dated December 27, 2024.
5. SUN4Ukraine, 2024 – https://www.sun4ukraine.eu/news-Twelve-Ukrainian-cities-join-the-SUN4Ukraine-initiative-of-the-EU-Climate-Neutral-and-Smart-Cities-Mission
6. European Commission. Mobility and transport – https://transport.ec.europa.eu/transport-themes/urban-transport/sustainable-urban-mobility-planning-and-monitoring_en
7. Sustainable Urban Mobility Plan for Lviv, 2019 https://www.mobiliseyourcity.net/sites/default/files/2020-10/Sustainable%20Urban%20Mobility%20Plan%20of%20Lviv_digital-compressed.pdf
8. The Concept of Cycling Infrastructure Development in the City of Kyiv, 2018