Place-based policies for frontline regions

Ukraine has lost close to a quarter of its civilian workforce since the invasion. Three and a half million workers left government-controlled areas: mobilised into the armed forces, displaced inside the country, gone abroad as refugees, or killed. 

Giacomo Anastasia, Tito Boeri, and Oleksandr Zholud draw on an unprecedented wartime dataset to document how Ukraine's labour market adapted under that pressure. What they find is not what you might expect. Aggregate matching efficiency fell by only about 15%; less than the decline recorded in the United States during the 2008 financial crisis. Firms hired women into roles previously closed to them by law, took on older workers and people with disabilities, and expanded remote work to keep displaced employees and refugees connected to Ukrainian payrolls. The collapse was real, but concentrated: in contested territories near the frontline, employment fell to less than half its pre-war level and vacancy postings dropped to virtually zero. The question the paper poses for reconstruction is how to sustain that resilience, absorb close to a million returning soldiers, and begin to reverse what five years of disrupted schooling has done to a generation.

The research behind this episode:

Anastasia, Giacomo M., Tito Boeri, and Oleksandr Zholud. 2026. "A Wartime Labor Market: The Case of Ukraine." Economic Policy: Papers on European and Global Issues, special issue: "What's Next for Ukraine?"

To cite this episode:

Phillips, Tim. 2026. "What's Next for Ukraine: A Wartime Labour Market." Economic Policy: Papers on European and Global Issues (podcast).

Assign this as extra listening. The citation above is formatted and ready for a reading list or VLE.

About the guests

Giacomo Anastasia is a PhD student in Economics at Columbia University and Columbia Business School. His research interests include public economics, labour economics, and industrial organisation.

Tito Boeri is Professor of Economics at Bocconi University and one of Europe's leading authorities on labour markets, unemployment insurance, and welfare state reform. He served as President of INPS, Italy's national social security institution, from 2015 to 2019.

Oleksandr Zholud is a researcher at the National Bank of Ukraine. He was central to maintaining the economic data systems that continued to function through the war, and which made the empirical work in this paper possible. 

Research cited in this episode

The civilian labour force contraction is estimated at roughly twenty to twenty-five per cent of the pre-war workforce in government-controlled areas, equivalent to a loss of around 3.5 million workers. The calculation combines refugees abroad (between six and seven million, of whom approximately seventy per cent are of working age), military mobilisation (at least 800,000 since 2022, up from 250,000 before the war), and combat casualties. The authors note that a shock of this scale has almost no modern precedent; the closest comparisons are Serbia's losses in the First World War and the economic disruption caused by the 1994 Rwandan genocide.

Work.ua is the largest online job-search platform in Ukraine, covering around 125,000 firms and 4.5 million workers. The paper draws on weekly data from Work.ua on vacancy postings, job-seeker resumes, and offered and expected wages to track labour market dynamics across sectors and regions throughout the war. This platform data continued to be updated through the conflict and provided the primary source for the paper's matching analysis, replacing the State Statistics Service household survey, which suspended publication after the invasion.

The InfoSapiens household survey, commissioned by the National Bank of Ukraine since 2021, serves as the wartime replacement for the State Statistics Service quarterly Labour Force Survey. It interviews around 1,000 individuals per quarter on employment, unemployment, and labour force participation, stratified by gender, age, region, and settlement size. Despite its smaller sample, it remains the primary regular survey-based source on Ukraine's labour market since the full-scale invasion.

The State Employment Service (SES) firm survey, conducted in January 2025 in cooperation with Helvetas Swiss Intercooperation, covered 55,000 enterprises employing 4.2 million workers plus 70,000 registered unemployed persons. This cross-sectional survey provided the paper's evidence on how recruitment practices, remote work adoption, and workforce composition changed after the invasion; it is described in the paper as one of the largest wartime enterprise surveys of its kind.

Air raid alarm data are used as the paper's proxy for regional exposure to the war. When missiles or drone attacks are detected, sirens activate across affected areas; the authors use the frequency and duration of these alarms to classify Ukrainian regions on a spectrum from low-exposure (western oblasts such as Lviv) to high-exposure (eastern regions such as Kharkiv) to contested (partially or fully occupied territories including parts of Donetsk and Luhansk). This classification is the basis for the paper's finding that war intensity is the primary driver of differences in labour market outcomes across regions.

Matching efficiency is a standard labour economics measure of how effectively the market converts a given stock of unemployed workers and open vacancies into new hires. A fall in matching efficiency means that jobs and workers exist but find each other more slowly. The paper estimates that Ukraine's aggregate matching efficiency declined by about fifteen per cent after the invasion; a smaller fall than the more than twenty per cent recorded in the United States during the 2008 financial crisis, though with severe deterioration concentrated in frontline and contested regions, where matching efficiency dropped by close to twenty-five per cent.

Remote work as a retention mechanism. A survey of Ukrainian refugees abroad found that roughly forty per cent of those in employment were working for Ukrainian firms remotely. Those maintaining an employment link to a Ukrainian company reported a significantly higher intention to return to Ukraine after the war compared with refugees employed by foreign firms. Anastasia argues this makes remote work not only an economic adaptation but a tool for sustaining the connection between displaced workers and the country they may one day return to rebuild.

More in the "What's Next for Ukraine?" series

This episode is the third and final in a series based on papers presented at the inaugural Economic Policy winter conference, Paris, December 2025.

Episode 1, with Yuriy Gorodnichenko and Maurice Obstfeld: why $40 billion a year in investment is more achievable than it sounds, why deep debt restructuring is a prerequisite for attracting private capital, and what the Euroclear frozen assets could unlock. 

Episode 2, with Edward Glaeser, Martina Kirchberger, and Andrii Parkhomenko: why the right model for rebuilding Ukraine's cities is postwar Tokyo rather than postwar Berlin or Warsaw, and why directing reconstruction spending towards the most damaged regions would be rebuilding in the wrong direction. 

Related reading on VoxEU

The labour market in Ukraine: Rebuild better, the companion VoxEU column by Anastasia, Boeri, and Zholud, summarising the paper's findings on matching efficiency, firm adjustment, and the policy priorities for reconstruction. 

You only live twice: A growth strategy for Ukraine, Gorodnichenko and Obstfeld's companion column to Episode 1, making the case for $40 billion a year in investment and explaining why EU and NATO accession momentum is the key enabling condition.

Rebuilding cities in Ukraine, a VoxEU column on the spatial and urban decisions that will shape how Ukraine's cities develop in the decades after the war, and why the Tokyo model of decentralised land readjustment is the right precedent.