The number of positions in public service is gradually decreasing—for example, there were 207,000 positions in March 2024, but by December of the same year, this number dropped to 192,000. However, the staffing shortage has remained roughly the same—around 16–17% (with 31,000 vacancies as of December 2024). Is public service still an attractive employer, especially for young people? What do current public servants and potential candidates think?
A nationwide survey conducted by Kantar in December 2023 found that a relative majority of respondents have a neutral attitude toward public service, while approximately 30% of the population view it positively and about the same share view it negatively. Among young people aged 18 to 35, nearly 50% have a neutral attitude toward public service.
Compared to 2021, attitudes toward public service have improved significantly—likely due to a “rally-around-the-flag” effect and the fact that many people received government assistance during the full-scale invasion. The share of people who would like to join public service has slightly declined (16% in 2023 compared to 20% in 2021) because the proportion of those who believe they cannot do so increased from 9% to 20%. Meanwhile, 63% of respondents said they would not want to work in public service. However, given the relatively small share of people who view public service negatively, their opinions could probably be changed.
For this, we need to understand what attracts people to public service and what discourages them, as well as how well potential public servants are aware of what awaits them. The same survey showed that the main attraction to public service is the idea of serving society, followed by official employment status and social benefits. What discourages people most is corruption (mentioned by almost half of respondents), dishonest recruitment practices, and dependence on supervisors. Low salaries are a barrier for only about a quarter of respondents.
This perception among Ukrainians aligns with the high levels of perceived corruption reflected in Transparency International corruption perception index and other surveys. Thus, the biggest changes Ukrainians expect from public service—the desired but currently absent qualities—are the inevitability of punishment for breaking the law, transparent asset declarations, as well as clear hiring procedures and requirements for public servants (therefore, providing this information could help attract more people to public service.) It is also clear that people feel a lack of communication from the state: two other highly desired but underdeveloped features are regulatory impact analysis before laws are adopted and timely, clear communication of legal changes to the public. The latter is especially important now, as reforms in Ukraine need to accelerate because of European integration.
“I worked in government agencies for over ten years. In my opinion—and our survey confirmed this—there is a need for a fundamental shift in the public service mindset. It is not as flexible as the business or nonprofit sectors, which makes it unattractive to potential professionals and difficult for outsiders to evaluate. Some people avoid public service because they fear that their supervisors would hinder their professional growth—and to some extent, this fear is justified.
However, the main problem is the lack of information about public service. It’s not just about open competitions and transparent procedures. It’s also about clearly explaining what public servants actually do. We lack information campaigns and outreach efforts in educational institutions about the work of government agencies—work that is often invisible but critically important,” says Iryna Ovchar, PhD in Political Science, a specialist in government relations and lawmaking, senior researcher at the Kuras Institute of Political and Ethnic Studies, and co-author of the GPA members’ opinion study.
Oleh Rozum, lawyer, member of the National Union of Journalists of Ukraine, and co-author of the study, agrees with her:
“The main factors discouraging young people from joining public service are corruption, a lack of transparency in career advancement, and low salaries. At the same time, motivating factors include the desire to serve society, the opportunity to influence state policy via their decisions, and the chance to gain unique experience. The National Agency of Ukraine on Civil Service and other government bodies need to improve their communication, as young people have little information about what public servants actually do or how to participate in competitions for certain positions.
To attract young people with zero tolerance to corruption and a Western-style education, the system of grants for talented youth with leadership potential should be improved. In addition, the motivation system for public servants needs to be reformed. In the long term, salaries should be raised, but for now, the lack of financial resources can be offset by offering educational programs and continuous professional development for public servants.
In the near future, Ukraine is expected to undergo large-scale reforms of its public administration system thanks to European integration and the Ukraine Facility plan. This plan envisions reforms to the wage structure, the optimization of government agencies, and a review of their functions to eliminate duplication and ensure effective coordination among them. These reforms are intended to streamline decision-making processes, lower administrative barriers, and boost the effectiveness of international cooperation—particularly Ukraine’s integration into the European Economic Area.”
How satisfied are current public servants with their jobs?
We can infer an answer to this question from a series of surveys conducted by the National Public Service Agency of Ukraine (NPSAU) among public servants, using the methodology developed by the Professional Government Association. In Table 1, we compare several indicators from these surveys and see that the atmosphere in public service has improved overall. Some positive indicators have increased (marked in green), while some negative ones have decreased (marked in pink). However, these conclusions may be affected by the limited representativeness of the surveys, as they are likely to be completed primarily by individuals who are satisfied with their jobs.
Table 1. Public servants’ assessment of various aspects of their work, % of respondents
| Question/Indicator | 2020 | 2023 |
| Personal connections are important for career advancement (completely agree + partly agree) | 22.9 | 30.5 ↑ |
| Loyalty to management is important for career advancement (completely agree + partly agree) | 38.8 | 50.5 ↑ |
| Are you satisfied with… | ||
| …the degree of your involvement in decision-making that affects your work? (completely satisfied + satisfied) | 65.7 | 71.5 ↑ |
| …the management practices of your leadership? (completely satisfied + satisfied) | 66.6 | 70.9 ↑ |
| …the amount and quality of information you receive from leadership about what is happening inside the government agency? (completely satisfied + satisfied) | 62.5 | 66.8 ↑ |
| …the recognition you receive for your work achievements? (completely satisfied + satisfied) | 49.6 | 61.1 ↑ |
| My direct supervisor treats me with respect (completely agree + partly agree) | 84.8 | 87.3 |
| I can freely express my opinions and concerns to my direct supervisor (completely agree + partly agree) | 81.5 | 83.3 |
| In my government agency, senior management generates a high level of motivation among employees (completely agree + partly agree) | 48 | 52.8 |
| Innovation is encouraged in my government agency (completely agree + partly agree) | 54.4 | 67 ↑ |
| Initiative is encouraged in my government agency (completely agree + partly agree) | 58.8 | 68.3 ↑ |
| I understand how my work aligns with my government agency’s goals and priorities (completely agree + partly agree) | 93.2 | 94.5 |
| Overall, how satisfied are you with… | ||
| …your professional choice to become a public servant (completely satisfied + satisfied) | 71.4 | 73.6 |
| …your salary (completely satisfied + satisfied) | 20.6 | 21.8 |
| …your job (completely satisfied + satisfied) | 80.5 | 80.2 |
| Public servants are generally innovators or rather innovators | 27 | 29.5 |
| I am an innovator, or rather an innovator | 59.8 | 59.9 |
| I work overtime when necessary | 91 | 92 |
| I have received illegal or unethical instructions | 15.2 | 10 ↓ |
| I have received illegal or unethical instructions several times a year or more often (among those who have received illegal or unethical instructions) | 63.5 | 37.5 ↓ |
| I cannot freely report illegal or unethical instructions | 25 | 13 ↓ |
| I do not feel protected from having to implement unethical instructions | 19 | 9 ↓ |
| Our government agency has a toxic corporate culture | 22 | 12.3 ↓ |
| Usually awarding of bonuses is not merit-based | 25% | 25% |
| I have encountered discrimination (mostly based on age and length of service) | ~25% | ~25% |
For example, in 2019, NPSAU conducted a survey on bullying and found that over 60% of public servants had experienced it. Bullying was mostly related to employees’ age or work experience and typically involved verbal abuse from supervisors. The surveys presented in Table 1 show a much lower level of bullying—10% in 2021 and 8% in 2023. It is unlikely that such a significant decline occurred so quickly. Therefore, this issue requires further research.
According to NPSAU surveys, younger public servants (under 36) are more often dissatisfied with their salaries and jobs. They are also more likely to view loyalty to management as an important factor in holding a position and to prioritize educational and ethical factors in career advancement. However, judging by Table 1, public servants are generally satisfied with their jobs but not with their salaries—even though, according to the Ministry of Finance, average salaries in government agencies are higher than the national average.
A survey of 200 members of the Professional Government Association (with a quarter of respondents currently employed in public service) shows that 65% are considering working for the government, while only 11% are not. At the same time, salary ranks only fifth among motivational factors. The main factors are the opportunity to have an impact on public policy, a sense of duty, and the chance to gain unique experience.
The Professional Government Association (PGA), active since 2014, brings together Ukrainian graduates of foreign universities who are involved in or ready to contribute to reforms in Ukraine, wherever they are based. PGA has branches in EU capitals and engages young people and professionals at all levels in building connections between Ukrainians and the state. To join the PGA community, you need to submit an application via the link and verify your diploma.
“We give our colleagues the opportunity to get involved and contribute to reforms and systemic changes—it’s an important way for engaged citizens to make a difference, especially in times of war,” says Olena Chepurna, Association head. “We keep our members informed about current vacancies, particularly in government and involve them in international projects and cooperation with ministries and agencies. We also organize conferences, advocacy initiatives, and informal community gatherings. And we support member initiatives—every member has the opportunity to design and launch their own project.”
Respondents in the survey cited a toxic organizational culture (including complex bureaucratic processes and excessive formalism), low salaries, corruption, and political influence over public servants as the main barriers to joining public service.
Those not currently considering a career in public service most often say they could change their mind if salaries were higher, corruption reduced, and management practices improved—for example, by introducing flexible working hours and reducing political influence. Even those unwilling to join the public sector are open to contributing in other ways, such as through technical assistance projects or contract work. Current public servants planning to leave within the next six months cite similar reasons: low salaries, a toxic work environment, excessive bureaucracy, and limited opportunities for career growth.
Similar conclusions can be drawn from both the NPSAU surveys and the survey of members of the Professional Government Association. Public servants, especially younger ones, want interesting and meaningful work—that is, they want to influence state policy, not merely fill out some papers. They also value career advancement based on achievements rather than on good relationships with supervisors or the length of service in a position.
The Ukraine Facility plan envisions reforms that align with these aspirations: the restoration of open competitions and an online portal (career.gov.ua) where information about them is published; the adoption of a law regulating entry into, advancement within, and exit from public service (so that public service is no longer a “black box”); and changes to the salary system. A recently adopted law limits bonuses to 30% of the salary (to reduce public servants’ dependence on their supervisors) and introduces a clear job grading system with defined salary ranges.
We believe that in addition to that, decision-making processes and procedures in government agencies should be reviewed to enable public servants to focus more on substantive work rather than paperwork. Since this review will require considerable time, its start should not be delayed.
Photo: depositphotos.com/ua
Attention
The author doesn`t work for, consult to, own shares in or receive funding from any company or organization that would benefit from this article, and have no relevant affiliations
