This paper discusses the role of statehood and limited statehood in relation to societal orders in Belarus and Ukraine. We conceptualize state capacity as a crucial factor affecting open and closed access orders and define its key elements. We investigate specifically public service provision by state and nonstate actors, while recognizing that security and control over territory are other important aspects of statehood which are problematic in Ukraine. Our empirical investigation of key public services covers, on the one hand, elements affecting public service provision such as public administration reform and independence, and on the other hand, the actual state of basic services. We find that healthcare, postal services and public transport are better developed in Belarus than in Ukraine. This reliable provision of public services likely contributes to the stability of the limited access order in Belarus. At the same time, politicization of the Belarusian public administration and authoritarian centralization of government institutions affect other public services and continue to represent a threat to the economy in Belarus. Ukraine, in contrast, while struggling to deliver some public goods and services, is taking important steps in public administration reform. This could result in creating a more professional and independent public administration in Ukraine and, in the longterm, an opening of access to public services on a more universal basis.
