What Is Continuity of Government, and Why Does It Matter for Ukraine’s National Resistance?

Ukrainian President Volodymyr Zelensky speaks during a news conference for foreign media in Kyiv, March 12, 2022

Photo by Ukrainian Presidential Press Service/Handout via Reuters

by Marta Kepe and Anika Binnendijk

March 17, 2022

As Ukraine continues to resist Russian occupation, future-focused planning could help it win a longer-term struggle to protect its legitimate government and deny Russia the political consolidation it seeks. Even if Russia’s assault yields further gains in establishing territorial control, Ukraine may still be able to thwart Russia’s ability to solidify its political power in Ukraine. In addition to resistance activities by the citizens who remain in Ukraine, ensuring the continuity of Ukraine’s democratically elected government could be a means of preserving national sovereignty moving forward.

Ukrainian President Volodymyr Zelensky has stated that he will not leave the capital, even as Kyiv is increasingly encircled, and despite reports of assassination attempts. This is a courageous and powerful decision that has contributed to Ukraine’s ability to maintain and increase public support for Ukrainian national resistance in the country and abroad. A longer-term contingency plan is also needed.

U.S. Secretary of State Antony Blinken recently confirmed that Ukraine has plans in place for “what we would call continuity of government one way or another.” The precise details of these plans to protect the safety and security of key members of the government are unknown. However, in addition to safeguarding the physical security of its existing leadership, Ukraine could ensure that it has a clear line of presidential succession beyond top government officials, and that this line of succession is made publicly known as part of the broader resistance strategy.

Because Russia’s strategic objectives for invading Ukraine likely include the installation of a more sympathetic regime, delineating continuity in Ukraine’s legitimate government, even if the current government is captured or killed, represents a core dimension of national resistance. This also could expand the resilience of Ukraine’s democratic governance beyond the vulnerability of any one individual or group and protect a legitimate source of operational leadership and morale for the remaining resistance actors.

Delineating continuity in Ukraine’s legitimate government, even if the current government is captured or killed, represents a core dimension of national resistance.Share on Twitter

Within the information battlefield, a public announcement of succession plans could deny Russia the ability to mount a convincing information campaign suggesting that its military actions in Ukraine are aimed at removing an illegitimate or undemocratic government. Indeed, a strong emphasis on preserving the established legitimate national government is one of the components that differentiates a national resistance (PDF) movement from an insurgency (which would seek to oppose a government).