City status is granted by theVerkhovna Rada (the national parliament ofUkraine) to certainpopulated places. It is not automatically given according to any particular criteria, although since 2024 settlements with more than 10,000 people and a high population density have been eligible for city status under a specific law. In addition, the status is typically granted to settlements of historical or regional importance, even if they do not meet the population threshold.
The status was not strictly defined until thelate Middle Ages, whenMagdeburg rights spread throughout Europe, giving several settlements legally protected privileges. Under thePolish–Lithuanian Commonwealth in the 16th century, a system of cities and towns developed, with some cities recognized asroyal and given special rights. During this time period, as well as under theAustrian andRussian empires from the 18th to the 20th centuries, city status was granted by kings and emperors. TheSoviet Union was the first to establish a clearly defined system, categorizing cities by population and importance, and giving the government ofSoviet Ukraine the authority to assign or change the status. SinceUkraine's independence in 1991, a similar system has been used, although the categorization of cities into those ofregional anddistrict significance was abolished in 2020.
Legally, cities do not differ significantly from other populated places (rural settlements andvillages), although city status is often seen as prestigious, helping mobilize resources and attract investors and tourists.[1][2][3] A city may host the administration of ahromada (municipality), in which case the hromada is classified as urban and its government is called acity council. A local council is in charge ofmunicipal services,local development, and other local functions, and its administration is overseen by anexecutive committee headed by an electedmayor. Cities may also be divided into subdivisions calledurban districts, a system currently used in 24 cities. Cities with fewer than 50,000 inhabitants are classified as small and fall under a national program for their development.
TheBlack Sea coast wascolonized by theGreeks since the 8th century BC.[8] Many of the colonies later came underRoman control, includingChersonesus, which was grantedeleutheria – the status of a free city with the right to self-government and to manage its own land and laws – by theemperor in the first century. In contrast,Tyras was grantedautonomy, which likewise provided some rights, albeit limited and exercised under the supervision of aprovincial governor.[9][10]
During theMiddle Ages under theKievan Rus', the termsgrad andgorod were used to refer tofortified settlements. The exact difference between the two is unclear: while historianPyotr Tretyakov [ru] theorized thatgrads were fortified estates inhabited by the nobility, some of which evolved into trading centers calledgorods, later historianPetro Tolochko concluded that neither term may have carried any social meaning. From the 9th to the early 12th century, about a hundredgrads were mentioned in theRus' chronicles,[11] although the majority of Rus' settlements were rural and often unfortified, and calledves,selo,pogost, orsloboda. Somegrads also served as capitals ofprincipalities, with the major ones located on the territory of modern Ukraine beingKiev,Chernigov,Pereyaslavl,Galich, andVolodimer.[12]
The system ofMagdeburg rights developed in Europe since the 14th century, granting selected settlements special privileges including self-government, tax and judicial immunity, the right to own land, trade benefits, and exemption from mostfeudal duties;[13] however, these rights largely applied toRoman Catholic men.[14][15] They eventually replaced an existing system ofcustomary law that had been in place prior to theMongol invasion of Kievan Rus', although the two often coexisted in individual cities.[16] TheKingdom of Hungary was the first to grant Magdeburg rights to cities located in modern-day Ukraine, the first beingKhust,Tiachiv, andVyshkovo in 1329.Yuri II Boleslav, the king ofGalicia–Volhynia, granted these rights toSanok in 1339, which brings about the possibility that other major cities of the kingdom, such asLviv and Volodymyr, could have also received the same rights in that period. After the kingdom wasconquered byPoland andLithuania, the system was implemented widely in the area.[13] Kings granted Magdeburg rights to large cities such asLwów (1356) andKiew (1494).[17][18] Magdeburg rights were also sometimes granted byprincely houses, for example toLokhvytsia,Lubny,Pryluky, andPyriatyn by theWiśniowiecki family.[13] Under thePolish–Lithuanian Commonwealth, a system of cities (Polish:miasta) and towns (miasteczka) was first established, with the former status given to settlements of great importance, receiving particular rights,[19] and the latter to settlements privately owned by the nobility that had the permission to organize markets and fairs.[20] Some cities were categorized asprivate, belonging to noble families or the church.[19] After the issue of theFree Royal Cities Act in 1791, a special category calledroyal cities was established, granting select cities special privileges including representation in theSejm, the right to ownlanded property, security guarantees, and a possibility ofennoblement.[21] After theCossack Hetmanate was established as the result of theKhmelnytsky Uprising, numerous towns and cities served asregiment centers, transforming them into important administrative, judicial, economic, and military hubs.[22] Cities and towns were then classified either as magisterial (those holding Magdeburg rights) or as ratusha towns, which were each headed by a chieftain known ashorodovyi otaman [uk] and were subject to the jurisdiction of the general Cossack authorities.[14]
The last wave of the granting of Magdeburg rights occurred when the rights were granted by thehetmans of the Hetmanate after itsunion with theRussian Empire, among the last beingPoltava andNovhorod-Siverskyi byKyrylo Rozumovsky.[13] A system of cities (Russian:города,romanized: goroda) and towns (местечка,mestechka) continued to exist under Russia after theliquidation of the Hetmanate.[20] From the early 18th century, city status was given directly by theemperor. The 1785Charter for the Rights and Benefits of the Cities of the Russian Empire [ru] issued byCatherine II defined the legal rights of city inhabitants and granted cities self-governance, establishing institutions such ascity dumas, and the permission to organize markets and fairs. A city was also given acoat of arms and acity plan approved by the emperor. During this period, cities were categorized as capital,governorate (provincial centers),uezd (county centers), ornon-uezd. While the exact number of cities in the Russian Empire changed significantly with every administrative reform, their rights and the process of acquiring the city status remained the same.[23] Since the 19th century, a status calledgradonachalstvo was assigned to certainmunicipalities (for example toOdessa in 1803[24]), positioning a city's administration under a city governor (gradonachalnik) subordinated directly to thegovernor-general.[25]
According to a decree byEmperor Joseph II on 13 May 1784, cities ofGalicia and Lodomeria – then underAustrian rule – were classified into three categories.Lemberg, as the regional capital, was the only first-class city; cities granted privileges by the emperor, such as additional pay for city citizenship, were categorized as royal; and urban settlements with their ownmagistrates were categorized as municipal. In 1811, cities were defined as populated places with city privileges, while towns were granted only the right to hold fairs.[26]
Initially, theSoviet Union retained the Russian Empire's status system, additionally defining cities as urban populated places with more than 10,000 inhabitants and granting theAll-Ukrainian Central Executive Committee the authority to change the status of settlements withinSoviet Ukraine.[27] In 1925, towns were abolished and replaced withurban-type settlements,[28] although some minor historic cities (such asChudniv andOlyka) were also classified as urban-type settlements.[29][30] In 1930, theCentral Executive Committee of the Soviet Union specified that cities with fewer than 50,000 inhabitants were subordinated to theraion (district) executive committees, while those with over 50,000 served as separate administrative units subordinated to the presidiums of therepublics' executive committees or tooblast (regional) executive committees.[31] Workers' settlements were introduced in 1956 as urban populated places with at least 500 residents, most of whom worked at a single enterprise,[32] but this category was abolished in 1965.[33] Briefly, from 4 September to 30 December 1956, the oblast executive committees were in charge of city status changes.[14]
From 30 December 1956 onward, the authority to change the status was given to thePresidium of the Supreme Soviet of the Ukrainian Soviet Socialist Republic, and cities were divided into three categories: of republican, regional, and district significance.Cities of republican significance functioned as first-level administrative divisions not belonging to any oblast (region) orAutonomous Soviet Socialist Republic. They generally had a population of at least one million (at least 500,000 before 12 March 1981) and served as major economic, cultural, and administrative centers.[32][34]Kiev andSevastopol were the only Soviet Ukrainian cities with this status, although the latter did not meet the defined population threshold.[14]Cities of regional significance functioned as second-level administrative divisions not belonging to any raion (district), thus formingmunicipalities that sometimes also included nearby villages. A city of regional significance was required to have a population of at least 50,000 and to possess developed housing and communal services or industry, or to have historic, recreational, or defensive importance, or the potential to develop any of these. All other cities were categorized ascities of district significance, which generally had a population of at least 10,000 and possessed industrial enterprises, a developed economy, state housing stock, or a network of socio-cultural institutions, or the potential to develop any of these.[32][34][35]
Since theindependence of Ukraine on 24 August 1991, the country has inherited the Soviet system, with all changes in city status done by theVerkhovna Rada (national parliament) instead. Cities of republican significance were renamed tocities with special status with the adoption of theConstitution of Ukraine in 1996, which categorizes Kyiv and Sevastopol as such.[7] The general population threshold for cities of regional significance was lowered to 30,000.[35] Cities of regional and district significance werede facto abolished in 2020 as part of an administrative reform[36][37] and removed from law in 2023 along with urban-type settlements, which were reclassified asrural settlements.[38] Currently, allpopulated places in Ukraine are divided into three categories (cities, rural settlements, andvillages), a system established by the Constitution.[7]
SinceUkraine's independence on 24 August 1991 but before the aforementioned law came into effect on 26 January 2024, 24 settlements have received city status largely on the basis of their historic, cultural, social, or economic importance rather than population:Zlatopil (1991),[48]Svitlodarsk (1992),[49]Hlyniany,Zelenodolsk,Pivdenne,Novodnistrovsk,Burshtyn (1993),[50]Rzhyshchiv (1995),[51]Morshyn (1996),[52]Teplodar (1997),[53]Shumsk (1999),[54]Pereshchepyne,Berezne (2000),[55][56]Lanivtsi,Baranivka,Lypovets (2001),[57][58][59]Olevsk,Mykolaivka (2003),[60][61]Perechyn (2004),[62]Novyi Kalyniv (2005),[63]Bucha (2007),[64]Baturyn (2008),[65]Chudniv (2012),[66] andReshetylivka (2017).[67] While this process remains possible, as seen inOlyka becoming a city in April 2025 despite not meeting the population requirements,[6][30] it is not clearly defined in law, and the ultimate decision in such cases rests with the Verkhovna Rada. As such, special exceptions to the usual procedures may be made, as in the 2022 draft resolution proposing to grant city status toHostomel solely in recognition of itshonorary titleHero City of Ukraine, although the proposal was withdrawn three years later without explanation.[68][69] Similarly, the Verkhovna Rada has the power to revoke city status, through either the change of city boundaries – which has only happened once, when the city ofInhulets [uk] merged intoKryvyi Rih in 2002[70] – or the reclassification of the city as a rural settlement or a village. The Cabinet of Ministers may also abolish populated places following an appeal by a regional or local government, given that they have been officially fully abandoned for at least three years.[39]
Cities with fewer than 50,000 inhabitants are classified as small cities.[71] As of 2017, residents of small cities make up 22% of Ukraine's urban population.[72] Such cities often face economic or demographic decline, climate change impacts, dependence on local government, and a lack of strategic planning and communication.[73] To address these challenges, the National Program for the Development of Small Cities was created in 2004. This codified legislative agenda created by the government aims to stimulate business and industry by fostering economic growth, create job opportunities, develop communication networks, and restore natural areas within small cities, among other goals. The program is financed through the state budget controlled by the Cabinet of Ministers as well as taxes collected by the city councils that are generated by economic growth caused by the program.[71] Although the program identified a number of problems faced by small cities and demonstrated the government's awareness of their importance, it failed to meet its developmental goals by 2009 and was criticized for not addressing the issues efficiently and for duplicating the content of existing legislative acts.[72][74]
Numerous cities host the administrations ofhromadas (communities), the country's third-level administrative divisions. The administrations may also be located in rural settlements or villages; however, when they are hosted by cities, they are referred to ascity councils, and the corresponding hromadas are classified as urban.[39] Each city council's administration is overseen by anexecutive committee headed by amayor, who is elected by the hromada's residents for a five-year term. While the same procedure applies to most settlement and village councils, rural hromadas (whose administrations are located in villages) with fewer than 500 residents may opt out of establishing an executive committee. City, settlement, and village councils are in charge of a wide range of areas, including municipal property management, socio-economic development of the community, housing andmunicipal services, construction, transport, communications, education, healthcare, sports, and local environmental issues.[75]
^The law on transport services distinguishes cities only in that the opening of an intra-regional bus route passing through a city requires approval from the city council; at the same time, it does not connect city status to taxation.[46]
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^Сводъ Учрежденій для Управленія Градоначальствъ [Collection of Institutions for the Management of the Gradonachalstvos].Сводъ Учрежденій Государственныхъ и Губернскихъ [Collection of State and Governorate Institutions] (in Russian). Vol. 2. St. Petersburg: Second Section ofHis Imperial Majesty's Own Chancellery. 1833. p. 561. Retrieved10 December 2025.
^abПояснювальна записка [Explanatory note].Official Website of the Parliament of Ukraine (in Ukrainian). 11 December 2024. Retrieved21 November 2025.Процедура, передбачена ст. 10 Закону України «Про порядок вирішення окремих питань адміністративно-територіального устрою України», для вирішення цього питання не підходить... І по суті більш підходить для «нових» міст. Тому для вирішення цього питання доцільно вирішити у винятковий спосіб не шляхом віднесення до категорії міст за вказаним Законом, а шляхом відновлення раніше втраченого стану. [The procedure provided for in Article 10 of the Law of Ukraine "On the Procedure for Solving Certain Issues of the Administrative and Territorial Structure of Ukraine" is not suitable for resolving this issue... And in fact it is more suitable for "new" cities. Therefore, to resolve this issue, it is advisable to resolve it in an exceptional manner not by assigning them to the category of cities under the specified Law, but by restoring the previously lost status.]
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