After Russian occupation of Kherson oblast in 2022, the President of Ukraine set up military administrations in free as well as occupied communities of the region. Administrations of occupied communities have kept performing their functions distantly. In 2025, Ukraine allocated almost 100 million UAH for the work of 32 military administrations. We analyzed procurement and other budgetary spending of military administrations of occupied communities of Kherson oblast and identified key problems as well as unique cases of public spending.
The main tasks of military administrations (MA) working on free Ukrainian territory are assistance to internally displaced persons (IDPs), cooperation with the Armed Forces of Ukraine, support of veterans and teachers, working online, and preparation for de-occupation of Ukrainian territories, currently controlled by Russians. As we found out, the lion’s share of their spending in 2025 was directed for the maintenance of their staff.
General expenses
According to our calculation, all military administrations on occupied part of Kherson oblast have spent 96 008 818 UAH during 11 months of 2025. The largest share was spent for salaries of employees of administrations (from 65% to almost 80%). That is to say, the Ukrainian state spends around 70 million UAH per year for the maintenance of the staff of administrations who perform mostly representative functions and do not take real decisions. If we take into account Single social contribution and military fee, then, the share of expenses on maintenance of staff and heads of MAs will increase to 90-95%.
Some administrations have spent the lion’s share of their resources for salaries of their heads. For example, former employee of law enforcement bodies Ruslan Rusal has headed Military Administration of small Chulakivka community of Skadovsk raion since the end of 2023. In 2024, he received 1 313 821 UAH as a salary. There is not yet information about his revenues in 2025. If they stay at the same level, then, the salary of Mr. Rusal would constitute almost half of 3 054 623 UAH, spent by his administration in 2025.
Ruslan Rusal, the Head of Chulakivka Military Administration of Kherson oblast. Photo: social media
For comparison: Total spending of «poorest» Novomykolaivka MA reached 1 336 669 UAH this year. It almost equals the salary of Ruslan Rusal. As the Center for Journalist Investigations found out, the Head of Chulakivka community had the largest salary among all heads of military administrations in Kherson region.
We addressed Mr.Rusal for comments on his record breaking salary. As he said, he received material assistance from the state and double salary as he lived and worked in Kherson, located on the front line.
«Besides a salary, I received material assistance, so-called «money for health improvement» and bonuses last year. My salary will be far less this year. For example, I received 53 thousand UAH in December 2025. It includes double salary. I and employees of my administrations work in Kherson, zone of active fighting. That is why our salaries are multiplied by special coefficient. It is regulated by respective order of the Cabinet of Ministries», as said Ruslan Rusal.
As the Head of Chulakivka MA reported, his administration opened the Center for IDPs in Kherson for all refugees from occupied communities. They can receive humanitarian assistance each month – food, hygienic stuff and special kits for children. Employees of this Center work in a zone of active fighting and receive additional bonuses.
There are other similar cases. Svitlana Linnyk, the Head of Gola Prystan MA, earned 1 159 293 UAH in 2024. If her salary stays at the same level, then, her administration will spend quarter of its resources for her salary.
Employees of the majority of MAs of occupied communities actively travel on business trips. Representatives of Nyzhni Sirogozy MA spent the most on business trips – 94 477 UAH (it is 3% of its budget). Gola Prystan MA spent a little bit less – 94 132 UAH. Representatives of eight from 32 MAs did not travel on business trips at all. Representatives of small Kostyantynivka community allocated 1 500 UAH for travels. It seems they made official visit to neighboring city.
Expenses of Gola Prystan Military Administration of Kherson oblast in 2025. Analytic data from online service Опендатабот
Nova Kakhovka City Military Administration had the largest budget – 13 229 859 UAH. Almost 10 million UAH were spent for salaries of its employees.
Ivanivka, Novotroitska, Genichesk and Kakhovka MAs had small amounts of court fees this year. Ivanivka MA paid judicial recovery (1 211 UAH) to Kherson branch of the General Prosecutor’s Office of Ukraine.
Public procurement
Military administrations of occupied communities of Kherson oblast spend relatively small amounts on public procurement, with some exceptions. They spend mostly on servicing computer equipment, acquisition of software licenses, stationary and management and support of their official websites.
The majority of MAs have signed contracts with private suppliers interconnected between themselves. Physical person-entrepreneur Molokova Valeria Stanislavivna from Dnipro has supplied software AIS «Local budgets» and relevant services to seven military administrations of occupied communities of Kherson oblast. Administrations use it to conduct accounting, to compile documents and reports and interact with the Treasury. Brother of Valeria, Molokov Vladyslav Stanislavovych, has been also physical person-entrepreneur. He supplies the same software and services to six military administrations of occupied communities on the Left Bank of Dnipro river. Both entrepreneurs have the same legal address. There is no doubt that they are relatives.
Ten administrations acquire the same product and services from Ukrainian LLC «IAS Servis» in Dnipro. Its director and co-founder is Molokova Natalia Anatoliivna. She seems to be mother of Valeria and Vladyslav Molokovs. Some administrations acquire services from mother’s company and her children-entrepreneurs.
Stanislav Molokov, Deputy of Dnipropetrovsk Oblast Council. Photo: tourdnepr.com
Molokov Stanislav Viktorovych, husband of Natalia Molokova and father of Valeria and Vladyslav Molokovs, is current Member of Dnipropetrovsk Oblast Council from political party «Proposytsia» [Proposal]. He is the developer of the software sold by his relatives. He indicated his copyright on AIS «Local budgets» in his 2025 public asset declaration.
Besides that, Natalia Molokova is co-owner of Ukrainian LLC «Neokom XXI». This company also sells AIS «Local budgets» to departments and units of military administrations of Kherson oblast. Dnipro resident Vynogradov Sergii Anatoliyovych is co-owner of LLC «IAS Servis» and «Neokom XXI». Entrepreneur with name «Vynogradova Angelina Gennadiivna» sold the same software to another five administrations of Kherson oblast. It seems there are two families selling the same software and services.
Since 2022, family of Molokovs has sold its software and services to authorities of Kherson oblast in more than 400 tenders. It means that their budget process depends upon these entrepreneurs.
Overall, over ten suppliers have satisfied the demands of several or majority of military administrations of the region at the same time. For example, physical person-entrepreneur Bass Yevhen Oleksandrovych has sold computer equipment, components and office paper to various units of MAs of occupied communities in 42 tenders. It can be explained by the fact that significant number of MAs of occupied communities was located in Kryvy Rih where this entrepreneur was registered.
Valerii Melnychenko, the Head of Vynogradivka Village Military Administration of Kherson oblast (center). Photo: Kherson Raion Military Administration
The spending of Vynogradivka Village Military Administration, headed by Valerii Melnychenko, has unique profile. Since its creation in 2022, the administration spent over 400 thousand UAH for public procurement. 320 thousand UAH were spent for the services of lawyer. In 2023, Vynogradivka MA signed two contracts with Kherson lawyer Sobyanin Andrii Volodymyrovych on delivery of legal services and legal representation. Two thousand UAH per hour were the terms of contracts. That is to say, Sobyanin had to provide legal services to the administration during 160 hours from August to December 2023.
Poorest Novomykolaivka MA ordered legal services of Kherson lawyer Myronenko Kateryna Borysivna for the total amount of 49 500 UAH. It is remarkable that it constituted over one third of procurement spending of this administration since its creation.
Procurement for the Armed Forces of Ukraine
Several MAs of occupied communities of Kherson oblast have actively acquired various goods for the Armed Forces of Ukraine. For example, Skadovsk community has bought drone detectors, life jackets and anti-thermal covers for 606 thousand UAH during three years. Public officials of Skadovsk MA also spent 97 200 thousand UAH for four fire sets «Rubin-U».
The richest military administration of occupied communities, Nova Kakhovka MA, has spent the most on public procurement since 2022. Its total spending on procurement reaches 38 million 364,6 thousand UAH. The administration spent almost 34 million UAH for procurement of drones from Kyiv based physical person-entrepreneur Ostapenko Alina Sergiivna. Drones were transferred to Ukrainian troops.
We should note that not all administrations of occupied communities could afford such a spending. For example, Velykopanivska, Dolmativka and Kostyantynivka MAs have not conducted any public procurement during three years. Since 2022, they have not updated their software and equipment and have not bought stationary for their needs.
Summary. Analysis of the work of military administrations of occupied communities of the Left Bank Kherson oblast demonstrates that almost all their budgetary resources (up to 95%) have been spent on salaries of their employees, their business trips and maintenance. These administrations have very limited possibilities to manage their occupied communities or deliver services to their residents.
There is logical question: Does the Ukrainian state need so many military administrations if they are not able to perform functions, stipulated by the law?
Analysis of public procurement demonstrates that the majority of contracts have been won by the same suppliers or interconnected suppliers. It means that administrations depend upon limited number of suppliers.
Some administrations spend on needs of defense. They buy military equipment, vehicles, drones from the Armed Forces of Ukraine. The size of military purchases depends upon financial capability of any given community. The majority of them are not able to conduct purchases for defense needs.
This material is written within IWPR project «Strengthening Civic Oversight» under financial assistance of Norway.
