Today, Saudi Arabia is recognised as a major regional and global power on the international stage. Vast oil reserves have provided the country with stable revenues and elevated its status enormously since its founding in 1932. Saudi Arabia’s prominence in the Middle East and among the countries of the so-called Global South is almost undeniable, particularly due to its role as the largest exporter of oil and its important position in the Islamic world as the custodian of the holy mosques in Medina and Mecca. This opens up considerable opportunities for Riyadh to enhance its own agency, especially during the current period of national reform or even renaissance, which began with the introduction of the Vision 2030 development strategy by Saudi Crown Prince Mohammed bin Salman. In particular, the Saudi authorities are leveraging this strategy as a tool of soft power to raise the country’s status on the international stage.

 

The publication is prepared within the project within the framework of the “New Global Partnerships for Ukraine: Expert Diplomacy and Advocacy”. This publication was compiled with the support of the International Renaissance Foundation. Its content is the exclusive responsibility of the authors and does not necessarily reflect the views of the International Renaissance Foundation. 

 

Summary

Pursuing a multi-vector and balanced foreign policy, Saudi Arabia strives to maintain close relations with the United States, China, the EU, Japan, South Africa, other African and South American states, and the ASEAN. However, Washington remains Riyadh’s primary ally in the security sphere. The United States supplies the KSA with cutting-edge weaponry and jointly coordinates actions to contain the Islamic Republic of Iran. Iran represents the principal geopolitical threat to Saudi Arabia, which makes Riyadh actively counter Tehran’s expansionist ambitions in the Middle East.

Ukraine and Saudi Arabia established official diplomatic relations on 14 April 1993. Ukraine’s diplomatic mission in Riyadh began operations in 1996, while the Kingdom of Saudi Arabia’s Embassy in Kyiv opened in 2009. Since King Salman’s ascension to the throne in 2015, there has been a notable intensification of dialogue between Ukraine and Saudi Arabia at both political and economic levels. The main areas of bilateral trade primarily encompass ferrous metallurgy, agriculture, and the IT sector. Investment activity has also seen active development. As part of its Vision 2030 strategy, Saudi Arabia has shown interest in investing in Ukrainian businesses. However, these processes have been partially suspended since the onset of the Russian-Ukrainian war. 

A significant achievement has been the increase in political contacts between Kyiv and Riyadh. Saudi Arabia has taken an active role in discussions regarding a peaceful resolution to the Russian-Ukrainian war, providing a platform for negotiations, including prisoners-of-war exchanges. Furthermore, the Kingdom of Saudi Arabia serves as a “voice” for the so-called Global South, facilitating dialogue through high-level bilateral relations between the KSA and Ukraine.

 

Contents

1. INTRODUCTION
2. Saudi Arabia’s Place and Role in The International Arena
3. Development of Relations between Ukraine and the Kingdom of Saudi Arabia after 1991
4. Political Relations
5. Trade and Economic Cooperation
6. Military and Technical Cooperation
7. Research and Development Cooperation
8. Social and Cultural Cooperation
9. UKRAINIAN-SAUDI COOPERATION AFTER 2022
10. CONCLUSIONS

 

INTRODUCTION

The KSA, a regional leader and geopolitical power, is actively expanding its global influence while implementing an ambitious socio-economic modernisation programme under the Vision 2030 strategy adopted by its government in 2016. Riyadh holds a leading position in the Arab world and serves as a prominent voice for the so-called Global South. Through its active participation in regional and global structures, such as the Arab League and OPEC, the Saudi leadership has gained credibility within the international community, leveraging its investment opportunities, ambitious projects, and influence on the global economy. Saudi Arabia’s ability to represent the interests of the Global South has become a key factor in Ukraine’s commitment to maintaining close relations with the Kingdom.

In its foreign policy, the KSA maintains neutrality in most armed conflicts, including the Russian-Ukrainian war. While supporting Ukraine’s territorial integrity, Riyadh refrains from openly condemning Russian military aggression, continuing top-level contacts with Moscow. Last year’s visit of Russian President Vladimir Putin to the Saudi capital underscored the Kingdom’s commitment to a neutral stance on the war, as well as interest in fostering trade and economic relations with Moscow. The Ukrainian leadership should carefully consider this dynamic in its efforts to expand cooperation with Saudi Arabia.

Despite this ambiguous stance, Saudi Arabia actively mediates between Ukraine and Russia on prisoner exchanges. The Saudi leadership’s role, influence, and connections enable them to facilitate negotiations on a peaceful resolution involving China, the United States, and Global South countries. By leveraging Riyadh’s political weight, Kyiv can potentially expand the circle of countries interested in a fair resolution of the Russian-Ukrainian war. 

The Palestinian issue is quite important and sensitive for Saudi authorities, particularly following the October 2023 escalation of the Israeli-Palestinian conflict. Ukraine’s stance on Israel’s military operation in Gaza impacts its relations with Saudi Arabia and other Arab countries, a factor that warrants careful consideration.

Ukraine and Saudi Arabia share numerous common political, trade, and economic interests. Global food security, defence capability enhancement, critical resource supply chain stability, medical advancements, tourism, educational exchanges, IT investments, and digitalisation provide a robust foundation for deepening bilateral relations. The past decade has seen intensified Ukrainian-Saudi cooperation, creating favourable prospects for post-war reconstruction projects in Ukraine as part of Vision 2030, which is an opportunity the Ukrainian authorities should actively pursue.

In addition to economic cooperation in agricultural exports, animal products, IT, and the defence industry, as well as investments in joint projects, Kyiv prioritises developing political relations with Saudi Arabia. Military-technical cooperation represents a promising avenue for bilateral relations with a fairly successful track record. Riyadh maintains a strong interest in Ukrainian missile developments, cutting-edge armoured vehicles, and their production technologies, which have demonstrated significant progress and battlefield efficiency during the Russian-Ukrainian war. Joining forces in the military-technical sphere could substantially boost both Saudi Arabia’s and Ukraine’s defence capabilities. The current trajectory of Ukrainian-Saudi relations showcases great potential for aligning Kyiv and Riyadh’s interests towards mutually beneficial prosperity.

 

 

Saudi Arabia’s Place and Role in The International Arena 

 

The Kingdom of Saudi Arabia emerged in the interwar period following Abdulaziz bin Abdul Rahman Al Saud’s conquest of the Arabian Peninsula in 1932. Allying with supporters of the radical Wahhabist sect of Islam, the new Saudi state was able to gain control over numerous regional tribes. The 1938 discovery of vast oil reserves marked a pivotal moment in the history of the young Kingdom, shaping Saudi Arabia’s profile and priorities for the next decades.

Oil revenues transformed the Kingdom into one of the Middle East’s wealthiest and most influential countries, enabling representatives of the Royal Family to intervene in conflicts or internal affairs of countries where they perceived the Kingdom’s core interests were affected. The 1973 oil embargo imposed by Arab monarchies, led by Saudi Arabia, against countries supporting Israel in its war with Syria and Egypt, exemplifies this influence. As the region’s wealthiest state and custodian of the two holy mosques in Mecca and Medina, the KSA secured high authority not only in the Middle East but beyond.

Religious factors significantly impact Saudi Arabia’s domestic and foreign policies. As the “Land of the Two Holy Mosques” and Wahhabism’s birthplace, it has long led the Islamic world. During the reigns of Kings Fahd bin Abdulaziz and Abdullah bin Abdulaziz, the country actively supported Islamic schools and organisations (sometimes militant groups) across the Middle East, Africa, Asia, and even Europe (Bosnia and Herzegovina, Albania, Kosovo). Promoting Wahhabist ideas was an important factor in the Kingdom’s policy until 2015. Guided by Sharia law, the KSA’s internal order remained the most stringent among all Islamic countries in the region, prohibiting women from driving, restricting their movement around the city without permission or male escort, maintaining the “morality police”, and banning cinemas and public listening to music.

While this deeply religious society allowed the monarchy to control domestic policy effectively, it negatively impacted the KSA’s image, especially after the 11 September 2001 terrorist attacks in New York, orchestrated and executed by Saudi citizens. The tragic events compelled Riyadh to partially reduce Islam’s influence on foreign policy, favouring greater pragmatism and strengthening relations with its strategic partner, the United States. The KSA has since assisted Washington in anti-terrorist operations and supported military campaigns in Iraq and Afghanistan against the terrorist organisations of al-Qaeda and ISIS.

The coronation of Salman bin Abdulaziz on 23 January 2015 and the subsequent elevation of his son, Mohammed bin Salman, to a Crown Prince, marked a turning point in the Kingdom’s development. Acting on behalf of the King, Mohammed bin Salman initiated reforms aimed at liberalising the country’s social fabric and diversifying its oil-dependent economy. These ambitious goals were encapsulated in the Vision 2030 strategy, which the KSA authorities, and Mohammed bin Salman personally, presented to the world on 25 April 2016. 

Vision 2030 serves as a flagship roadmap for Saudi leadership and citizens alike. The strategy envisages substantial investments in the development of Saudi Arabia’s economy, tourism, entertainment, education, science, healthcare, technological modernisation, and even the construction of the ultra-modern city of NEOM. The KSA authorities aim to achieve these declared goals and implement the planned projects by 2030. Over the past nine years, religious restrictions have been eased, for example, the ban on women driving has been lifted, and the Crown Prince has announced the liberalisation of public life. However, despite these liberalisation efforts and economic initiatives of the new leadership, Saudi Arabia remains conservative and far from democratic ideals. The Kingdom maintains censorship, prohibits criticism of authorities, and may physically restrain dissidents. Human rights remain a very sensitive topic for the KSA, one best avoided to maintain good relations with the Saudi state.

Beyond its domestic impact, the implementation of Vision 2030 enhances the KSA’s geopolitical role by strengthening investment, trade, and economic cooperation with the world. Ukraine’s increased involvement in projects under the Saudi development strategy could potentially yield long-term positive effects, especially during post-war reconstruction. Saudi Arabia is positioning itself not only as a regional leader but also as a significant global force. As part of Vision 2030, the country is allocating substantial resources to bolster its international influence and image by funding humanitarian projects domestically and abroad, promoting sports, digitalising and diversifying the economy, and more.

As a regional leader in the Middle East, Saudi Arabia is involved in all regional political processes and significantly influences their course. The Kingdom heads several intergovernmental organisations, including the Arab League, OPEC, and the Organisation of Islamic Cooperation. The KSA has even faced accusations of interfering in the internal affairs of countries in the region, such as the actual kidnapping of former Lebanese Prime Minister Saad Hariri or the military intervention in Yemen in March 2015. Such controversial actions by Saudi authorities are primarily attributed to geopolitical confrontation with the Islamic Republic of Iran.

The Iranian threat remains Saudi Arabia’s primary security challenge despite the recent normalisation of relations mediated by China. Given Tehran’s actual participation in the Russian-Ukrainian war on Moscow’s side, Ukraine and the KSA have an opportunity to coordinate efforts to deter and counter the Iranian threat jointly. Saudi Arabia’s military operation in Yemen against the pro-Iranian Ansar Allah movement and its initial support for the anti-Assad opposition in the Syrian civil war demonstrate Riyadh’s determination to curb Iranian influence in the Middle East.

Driven by the need to combat a common enemy (Iran) and pragmatic interests, Saudi Arabia is moving towards establishing bilateral relations with Israel. The political leaderships of both countries have maintained stable contact, and in October 2023, they were on the verge of official political normalisation. However, the escalation of the Israeli-Palestinian conflict temporarily halted this process. King Salman and Crown Prince Mohammed bin Salman’s approach to the Israel-Palestine conflict is pragmatic, offering only declarative support for Palestinians while seeking to intensify cooperation with Israel for security, trade, and economic reasons.

The multivector approach is a crucial element of Saudi Arabia’s foreign policy, involving the establishment of productive relations with all global actors in international relations. By balancing between the USA, China, the EU, Russia, India, Japan, South Africa, ASEAN countries and others, Riyadh maximises political and economic benefits from comprehensive cooperation. In this aspect, the ability to conduct policy independently of external influences is a significant factor for the KSA authorities. While the United States remains one of Saudi Arabia’s main partners, with active cooperation in military-technical, economic, and cultural spheres, the Saudi authorities balance US influence by close cooperation with China. 

Riyadh’s diplomatic activity contributes to achieving its geopolitical goals of strengthening its agency in the international arena. The multivector approach enables the KSA to play a mediating role in various conflicts, such as the Russian-Ukrainian war. Riyadh’s contacts allow it to initiate dialogue on humanitarian issues between Ukraine and Russia or to engage China and countries of the so-called Global South in the negotiation process. In the latter case, Saudi Arabia’s positive image and substantial influence, bolstered by its investments, allow the KSA to act as a kind of “voice” for this group of countries in the international arena. 

 

Development of Relations between Ukraine and the Kingdom of Saudi Arabia after 1991

 

Ukraine and Saudi Arabia established official diplomatic relations on 14 April 1993. A significant milestone in their development was the visit of the then Prime Minister of Ukraine, Leonid Kuchma, to the Saudi capital. During this visit, the foreign ministers of the two countries signed the “Protocol on the establishment of diplomatic relations between Ukraine and the Kingdom of Saudi Arabia” at the level of embassies. The Embassy of Ukraine in Riyadh was established in 1996, while the Embassy of the Kingdom of Saudi Arabia in Kyiv opened in 2009, following Riyadh’s increased interest in economic cooperation with Ukraine.

Since the establishment of official contacts, Ukrainian-Saudi relations have developed actively. There has been mutual interest in promoting political dialogue and establishing top-level contacts. Three Ukrainian presidents – Leonid Kuchma in 2003, Petro Poroshenko in 2015 and 2017, and Volodymyr Zelenskyy in 2023 and 2024 – paid official visits to Saudi Arabia. During this period, more than 18 visits were conducted at the level of ministers, deputy ministers, and parliamentary delegations from both sides. These meetings primarily focused on expanding economic ties, particularly in food security and agriculture. Economic partnership has become the main driver of Ukrainian-Saudi relations. 

Until 2014-2015, the scale of political and economic cooperation between Ukraine and Saudi Arabia was limited. Ukrainian authorities were mainly interested in relations with the EU and the Russian Federation, while other regions (Africa, the Middle East, Asia, South America) were virtually ignored. Russian aggression has forced Kyiv to pay more attention to greater interaction with countries of the Global South. The mutual interest of Kyiv and Riyadh in more active economic cooperation has helped to accelerate the pace of bilateral relations. 

January 2015 can be considered the beginning of the most active phase in bilateral relations between Ukraine and Saudi Arabia. The accession of King Salman bin Abdulaziz Al Saud to power provided impetus for a more active foreign policy of the Kingdom of Saudi Arabia. His son and deputy, later Crown Prince Mohammed bin Salman Al Saud, initiated the process of reforming the country’s domestic and foreign policy. Riyadh intensified its foreign economic activity to find promising areas for investment in different regions of the world, aiming to diversify its economy and reduce dependence on oil exports. As part of this process, Saudi Arabia showed interest in establishing productive cooperation between Eastern Europe and the Middle East. Ukraine’s expertise in agriculture, aircraft design and digitalisation has become a promising investment vector.

 

Political Relations 

Russia’s annexation of Crimea in the spring of 2014 and subsequent hybrid aggression in eastern Ukraine have led to the destruction of Europe’s security architecture. Punishing the aggressor and reclaiming occupied territories became the main goal of Ukraine’s foreign policy. This shift had an impact on Ukraine’s relations with different regions worldwide. Even before 2014, potential Saudi investments, cooperation in the energy and agricultural sectors, and Riyadh’s political influence in the Middle East region had sparked Ukraine’s interest in intensifying bilateral relations. As events following Russia’s full-scale invasion of Ukraine on 24 February 2022 demonstrated, these potentially close economic ties could translate into political support from Saudi Arabia. 

In the international arena, the Kingdom of Saudi Arabia officially supports Ukraine’s territorial integrity. At the UN General Assembly meeting on 27 March 2014, its representatives voted in favour of the resolution “Territorial integrity of Ukraine”. Riyadh did not recognise the annexation of Crimea or the creation of quasi-state Russian entities in the Donetsk and Luhansk regions. Subsequently, Saudi Arabia voted for all pro-Ukrainian resolutions at UN General Assembly sessions, including calls for the withdrawal of Russian troops from Ukraine and addressing the militarisation of Crimea and the Black Sea.

However, it is worth noting that after 2014, the KSA leadership has not directly condemned Russia’s expansionist actions. This stance aligns with the country’s foreign policy doctrine, which aims to build productive relations with all international actors while remaining neutral in regional conflicts (except for the Middle East). 

In 2015, Ukrainian President Petro Poroshenko paid a working visit to Saudi Arabia to express condolences on the death of King Abdullah bin Abdulaziz. During his stay in Riyadh, the Ukrainian leader held talks with King Salman bin Abdulaziz, discussing Russia’s aggression against Ukraine, trade and economic issues, and military-technical cooperation. The Saudi side reaffirmed its commitment to upholding international law, sovereignty, and the inviolability of borders. 

On 31 October 2017, President Petro Poroshenko paid his second official visit, during which he discussed strengthening cooperation in political, trade, economic, investment, military-technical and humanitarian spheres. This visit contributed to the intensification of contacts between the parties at various levels in the following years.

 

Trade and Economic Cooperation

The main areas of cooperation were identified during the official visit of Ukraine’s Minister of Foreign Economy and Trade, Serhiy Osyka, to Saudi Arabia in 1997. Following President Leonid Kuchma’s visit to Saudi Arabia in January 2003, the parties signed a “Framework agreement on trade, economic, scientific, technical, and investment cooperation”. A notable development was the establishment of the intergovernmental Ukrainian-Saudi Commission on Trade, Economic, Scientific and Technical Cooperation, which first met in Jeddah, KSA, in July 2004. The Commission aims to support trade and investment development between Ukraine and Saudi Arabia. As of 2024, six joint meetings have been held, with the last taking place in November 2018. To intensify contacts between the business sectors of both countries, the Ukrainian-Saudi Business Council was established in 2009 following the signing of a Memorandum of Understanding between the Ukrainian Chamber of Commerce and Industry and the Council of Saudi Chambers of Commerce and Industry. The Council serves as an important mechanism for supporting cooperation between the business communities of both countries, creating a platform for effective exchange of ideas and experience, and promoting economic opportunities.

Before 2022, Riyadh recognised Ukraine as a promising trading partner with a favourable geographical location for developing trade and economic relations under the Vision 2030 strategy. Cooperation with Kyiv, in particular, is seen as an important component in creating a more diversified and sustainable economy and reducing GDP dependence on oil exports. In this context, special attention is paid to creating new opportunities in both countries and supporting joint projects, such as construction of the An-132 aircraft.

Economic cooperation is central to Saudi-Ukrainian relations. Riyadh sees Ukraine as a promising market for investment in various sectors of the economy, from agriculture to IT. Despite the Russian-Ukrainian war, bilateral trade and economic cooperation between Ukraine and Saudi Arabia has continued, although it has dropped by half compared to pre-war levels. 

Observing the trend in trade and economic relations and the structure of trade between Saudi Arabia and Ukraine, we can identify agriculture as the main area of cooperation. Saudi companies maintain a high interest in the Ukrainian agricultural market. The largest contract in the agricultural sector during Ukraine’s independence was the acquisition of the Ukrainian agricultural holding Mriya by the leading Saudi company, Saudi Agricultural and Livestock Investment Co. (SALIC), in September 2018. This deal highlighted Ukraine’s importance for global food security. Saudi business’s active involvement in the Ukrainian agricultural market began in 2013 with the takeover of the British company Continental Farmers Group by SALIC, which is owned by Saudi Arabia’s sovereign wealth fund. The consortium leased about 45,000 hectares of land in Lviv and Ternopil regions, growing wheat, barley, potatoes, oilseeds, and sugar beet. In the year of Mriya Agro Holding’s acquisition, the total land bank of the Saudi company in Ukraine increased to 200,000 hectares. In 2020, Saudi Arabia purchased 60,000 tonnes of wheat from Ukraine through SALIC.

Saudi interest in the Ukrainian agro-industrial complex was evidenced by constant contacts at the ministerial level and Saudi delegations’ regular participation in major agricultural events in Ukraine. Notable initiatives in recent years included the First and Second Ukrainian-Saudi Investment Forums in the agricultural sector, held in Kyiv in 2018 and 2019. These forums aimed to promote mutually beneficial investment and cooperation in agriculture between Ukraine and Saudi Arabia. Representatives from the private sectors of both countries participated, creating favourable conditions for sharing experiences, finding new partners, and developing joint projects. 

The two governments signed a Memorandum of Investment Cooperation in Agriculture. Additionally, a Ukrainian-Saudi working group on trade and investment in agriculture was established in 2021. The working group’s aim was to develop practical steps to expand the presence of Ukrainian agricultural products in the Saudi market, attract investment in local agriculture, and use Saudi logistics capacities to promote Ukrainian products to other Gulf countries, the Middle East, and North Africa.

Saudi Arabia has encouraged its private sector to invest in agricultural land abroad, which has helped to ease its wheat specifications and increase grain imports from the Black Sea region. Such cooperation also aligns with the Saudi Green Initiative, launched in 2021 as part of the Vision 2030. In this context, cooperation with Ukraine in the agricultural sector provides additional opportunities to ensure food security and involves the exchange of green technologies between the two countries. 

Before the outbreak of the full-scale war, tourism had become one of the most promising areas of bilateral cooperation. Ukraine was one of the 49 countries where Saudi citizens could apply for multiple-entry tourist visas electronically. In 2020, Kyiv and Riyadh liberalised visa arrangements for citizens of the KSA and Ukraine. In 2021, the number of tourists from Saudi Arabia to Ukraine totalled 48,700, ten times more than the total number of Saudi tourists who visited Ukraine in 2019. Among the success factors were the entry of the leading Saudi low-cost airline Flynas into the Ukrainian market and the launch of flights by the Ukrainian airline SkyUp. With the onset of Russia’s full-scale aggression against Ukraine, the number of tourists from the KSA has decreased to a minimum due to security risks.

 

Military and Technical Cooperation

Saudi Arabia boasts one of the most advanced armies in the Middle East, equipped with cutting-edge weaponry. Due to regional conflicts and terrorist threats in the Middle East, Saudi Arabia is actively modernising its armed forces to ensure the effective protection of its borders and interests. The fight against Islamic extremism and potential threats from Iran and its allies, such as the Houthi groups in Yemen, makes army development a crucial factor in the Kingdom’s policy. Saudi Arabia actively seeks military-technical cooperation with other countries to enhance its defence capabilities and develop its military industry. Consequently, military cooperation with other states, including the supply of military equipment and training programmes, has become a priority for the Saudi leadership. 

The KSA’s military-technical cooperation with Ukraine has a long history, but most agreements are classified, making reliable public information about the full scope of cooperation scarce. The impetus for intensifying contacts in this area came from the visit by a delegation of the Saudi Defence Ministry to Ukraine in February 2020, during which the two governments signed a Defence Cooperation Agreement. This opened up wide opportunities for Ukraine’s defence industry development and strengthened military-technical cooperation with Saudi Arabia. Such defence collaboration can significantly increase the effectiveness and strength of both countries’ military potential.

Prior to the full-scale Russian invasion, Ukraine considered Saudi Arabia one of its main markets for arms exports and a key defence partner actively purchasing Ukrainian-made weapons. In 2019, the KSA was the second-largest market for arms sales, importing weapons worth USD 57.85 million, up from USD 24.2 million the previous year. In 2018, Saudi Arabia purchased Ukrainian Skif and RK-3 Corsar anti-tank missile systems developed by the Kyiv State Design Bureau Luch. Several hundred Corsar and Stugna ATGMs worth more than USD 165 million, as well as Kozak-5 armoured vehicles, had been delivered by the end of 2021. Additionally, Riyadh showed great interest in the Neptune and Vilkha anti-ship missiles, Skyeton’s Raybird-3 UAVs, and electronic warfare systems. 

In 2022, reports emerged that Saudi Arabia, as part of US-mediated aid, returned to Ukraine the Hrim-2 operational-tactical missile system it had previously purchased from Kyiv.

In the 2010s, an agreement was reached between Saudi Arabia and the State Concern Ukroboronprom to establish joint cooperation and arms development, though detailed information on the scope of cooperation is not publicly available. Saudi Arabia’s Vision 2030 development strategy aims to localise half of its military equipment production through agreements with foreign companies. Thus, Ukraine has prospects of becoming one of Riyadh’s key partners in future military industry development. The latest Ukrainian defence industry developments and the Armed Forces’ experience may interest Saudi Arabia, which is already expressing interest in intensifying military-technical cooperation. While arms exports from Ukraine are currently suspended due to domestic needs, military-technical cooperation could be considered one of the most promising areas of bilateral cooperation between Ukraine and Saudi Arabia after the war ends.

 

Research and Development Cooperation

Significant progress in research and development cooperation was observed in aircraft construction. In 2013, during talks with the Ukrainian government, Prince Turki bin Mohammed Al Saud, who served as president of the King Abdulaziz City for Science and Technology, noted Ukraine’s significant technological potential in the aerospace industry. In spring 2015, Antonov began developing the An-123 project in cooperation with Taqnia Aeronautics, a subsidiary of the Saudi organisation specialising in aviation development and investment. This joint work resulted in the An-132D light transport aircraft, first presented to an international audience at the 52nd Le Bourget International Air Show 2017 near Paris from 19 to 25 June 2017. The An-132D was equipped with a number of components from Western companies after the Antonov company stopped cooperation with Russia, including Pratt & Whitney Canada PW150A engines, propellers from Dowty Propellers, and subsystems from manufacturers such as Honeywell, Liebherr, and Crouzet. Cooperation between Ukraine and Saudi Arabia on this project concluded in 2021. According to Serhii Bychkov, CEO of Antonov, the project was suspended due to “tactical mistakes in the An-123 design and the beginning of lobbying for Airbus’s interests in the Saudi government”. However, Antonov’s CEO mentioned the possibility of resuming such cooperation in the future. The prospects for Ukrainian-Saudi relations in the aircraft industry remain fairly high, primarily in light transport aircraft design and component production.

In recent years, cooperation between Ukraine and Saudi Arabia in the IT sector has been developing rapidly. Saudi Arabia’s Vision 2030 development strategy sets an ambitious goal to transform the country’s economy, moving away from oil dependence to a more sustainable, diverse, knowledge-based economy. Economic diversification is central to this strategy, with the IT sector playing a key role in achieving this goal. The Saudi Data and Artificial Intelligence Authority (SDAIA), founded in 2019, is the key government organisation promoting the development and use of artificial intelligence and data analytics technologies in Saudi Arabia. The country has achieved high levels of internet usage and basic IT skills among its population, with Riyadh committed to digital transformation across various areas, from government services to manufacturing.

Ukraine, with its talented personnel and IT companies, has gradually begun exploring the Saudi market. P2H INC, an American IT company with Ukrainian roots that has been operating in the IT market for about 18 years, was one of the pioneers. Its specialists have been converting web page designs in HTML and CSS for ten years and have been actively working on the digital transformation of government agencies, especially in e-government, for the past seven years. In early 2024, P2H INC opened its own office in Saudi Arabia, increasing its involvement in the Middle Eastern country’s digitalisation. This Ukrainian-managed company has achieved significant success in the Saudi IT market, becoming an example of successful cooperation between Ukrainian and Saudi Arabian businesses. Intellias is another successful case of a Ukrainian IT company operating in the KSA, actively cooperating with private businesses in the Saudi Kingdom. 

The space industry has become an important element in achieving the goals of the Vision 2030 development strategy. At the end of 2018, the Saudi Space Commission (SSC) was established under the leadership of Prince Sultan bin Salman Al Saud, the country’s first astronaut, to promote space exploration and create a favourable environment for business opportunities in the space industry. In 2011, Riyadh signed an agreement with the Ukrainian government on cooperation in the peaceful exploration and use of outer space, which was intended to open up new opportunities for both sides in the exploration and commercialisation of outer space. However, over the past three years, cooperation in this area has remained virtually frozen.

Given Ukraine’s strong scientific base in space research, further cooperation between the two countries could also include the joint production of artificial satellite systems. The two sides already have a track record of successful cooperation in several aerospace projects, such as a research sounding rocket, a medium-sized satellite launcher, and an anti-aircraft missile. Despite Russian aggression, Ukraine is making progress in rocketry (Hrim-2), which may be an argument for Saudi leaders to intensify cooperation with the Ukrainian side in this area.

 

Social and Cultural Cooperation

The establishment of intercultural ties has become an important step in developing relations between Ukraine and Saudi Arabia. Healthcare is a promising area in bilateral relations. For instance, the International Rehabilitation Clinic of Professor Kozyavkin (Truskavets) is actively expanding its activities in the Saudi market. The professor’s visits to the Kingdom to participate in international exhibitions for people with special needs and conferences on disability and rehabilitation have helped to promote his methods and gain international recognition. Professor Kozyavkin negotiated with the largest local medical rehabilitation and physiotherapy centres. In 2017, a delegation from the International Rehabilitation Clinic visited a large medical and social institution specialising in medical rehabilitation and physiotherapy, the Sultan bin Abdulaziz Humanitarian City, and the Disabled Children’s Association. They familiarised themselves with the institution’s operational principles and held talks with its management on possibilities for further cooperation.

Cooperation in education is mainly limited to providing educational services for a small number of Saudi students in Ukrainian higher education institutions, amounting to several dozen people. A notable event was a roundtable discussion organised by the Diplomatic Academy under the Ministry of Foreign Affairs of Ukraine and the Prince Saud Al Faisal Institute for Diplomatic Studies under the KSA Ministry of Foreign Affairs in April 2018. Additionally, in April 2019, a delegation from the King Abdullah bin Abdulaziz International Centre for Interreligious and Intercultural Dialogue and the Saudi Geographical Society visited Kyiv. They toured the Taras Shevchenko National University of Kyiv and Taurida National University, signing a memorandum of cooperation with the former’s Geography Department. 

Currently, Ukraine’s cultural efforts are focused on promoting the Ukrainian Bookshelf initiative of First Lady O. Zelenska, which involves providing the world’s leading libraries with Ukrainian literature, including the King Fahd National Library and King Saud University in Riyadh. There is growing interest in Saudi Arabia for artistic groups, experts, and media from other countries, including Ukraine, to visit the country. For example, in March 2019, the Ukrainian delegation took part in the international cultural and sports ethnic festival Nomad Universe. However, other activities of the Ukrainian side in this area were minimal.

In sports, further development of cooperation between relevant federations and organisations in Ukraine and Saudi Arabia looks promising. Sports play an important role in Saudi Arabia’s Vision 2030 development strategy. Recently, Riyadh has increased funding for football development in the country, inviting famous players (Cristiano Ronaldo, Karim Benzema, Neymar) to play for local clubs. In March 2018, a friendly match between the national football teams of Ukraine and the KSA took place. In 2019, Saudi athletes held training camps in badminton, diving, and fencing in Ukraine. However, with the outbreak of the full-scale war in Ukraine, such cooperation has effectively ceased. 

Saudi Arabia was awarded the right to host the FIFA World Cup in 2034. Saudi Arabia’s Sovereign Wealth Fund is actively investing in football projects abroad, thus promoting the sport and improving its own image. The KSA also hosts other international sporting events, such as boxing, tennis, golf, and F1 racing. Ukraine can share its experience in organising sport events, such as Euro 2012. It can also use sports diplomacy to establish new contacts with Saudi colleagues.

Summing up the overall activity in bilateral relations between Ukraine and the KSA, we can note the rapid growth in cooperation dynamics after 2015. The new King of Saudi Arabia, Salman bin Abdulaziz Al Saud, and Crown Prince Mohammed bin Salman began pursuing a proactive foreign policy, with a particular focus on trade and economic cooperation. As part of the KSA’s development strategy, investments in Ukrainian agriculture, aircraft manufacturing, and interest in the IT sector have boosted the dynamics of bilateral relations. 

Russia’s full-scale invasion in 2022 opened up space for a broader political dialogue between Ukraine and the KSA, which was designed to reduce the negative impact of the Kremlin’s aggression and find ways to peacefully resolve the war in accordance with Ukraine’s vision. Riyadh began to mediate in negotiations on prisoner exchanges and provide a platform for meetings to find ways to end the war. 

 

UKRAINIAN-SAUDI COOPERATION AFTER 2022

 

The Russian full-scale invasion of Ukraine on 24 February 2022 brought some adjustments to the nature of Ukrainian-Saudi relations. Initially, Saudi Arabia supported the UN General Assembly resolution of 3 March 2022 and subsequent similar ones, which demanded that Russia cease hostilities and immediately withdraw its troops from Ukrainian territory. Thus, Riyadh effectively recognised Russia as an “aggressor country”.

An important step in supporting Ukraine was the KSA’s assistance in exporting Ukrainian grain and providing humanitarian support. The issues of food security and the functioning of the grain corridor have taken centre stage in bilateral relations. 

At the beginning of the Russian invasion, Saudi Arabia repeatedly expressed its readiness to mediate in possible peace talks between Ukraine and Russia, as noted during a telephone conversation between Crown Prince Mohammed bin Salman and Russian President Vladimir Putin in March 2022. Riyadh maintains close ties with the leadership of both conflicting parties, allowing it to aspire to the role of mediator. For example, during a large-scale prisoner exchange in September 2022, Saudi mediation helped to secure the release of ten foreigners who had been detained by Russians in occupied Ukrainian territories. In an interview with the BBC after the prisoner exchange, Saudi Foreign Minister Prince Faisal bin Farhan Al Saud briefly outlined Riyadh’s intentions to mediate in the Russian-Ukrainian war: “Negotiations have begun – but, unfortunately, they have not been successful. Now, our task is to look for other potential opportunities. And, of course, we will look for such opportunities. I cannot predict when that will happen, but we certainly hope it will be sooner rather than later.”

Ukrainian President Volodymyr Zelenskyy’s visit to Saudi Arabia on 19 May 2023, as part of the Arab League summit, is considered an important event in bilateral relations. The visit, at the Saudi side’s invitation, added momentum to the KSA’s interest in mediating between Kyiv and Moscow. Inviting the leader of a non-Arab state to the Arab League summit was an unprecedented step. It demonstrated the Saudi leadership’s inclination towards the Ukrainian position on the Russian-Ukrainian war. Volodymyr Zelenskyy’s speech at the Arab League summit allowed him to convey Ukraine’s vision of the war and ways to end it.

During the visit, President Zelenskyy met Crown Prince Mohammed bin Salman Al Saud. They discussed topical issues, including food security and promoting peace in Ukraine. This visit was an important step in developing diplomatic relations and confirmed mutual interest in solving global problems, promoting stability, and peacefully settling the Russian-Ukrainian war. After a series of meetings between the Ukrainian president and Saudi officials, including the Crown Prince, Saudi Arabia declared “active neutrality” in the Russian-Ukrainian war. This stance aims to achieve a peaceful settlement of the “crisis” (as the Saudi side termed it) through intensive diplomacy and cooperation with the conflicting parties.

On 5-6 August 2023, Saudi Arabia organised and hosted a meeting within the framework of the Ukrainian Peace Formula at the level of national security and foreign policy advisers from about 40 countries in Jeddah. The presence of Li Hui, the Chinese government’s representative for Eurasian affairs, was important for Ukraine. Thanks to Saudi Arabia’s efforts, Kyiv was able to convey its plan to end the war to China and the countries of the so-called Global South. Saudi Arabia’s peace initiatives serve to confirm the country’s important role in global processes, especially in conflict resolution. Ukraine is interested in the KSA’s mediation in the negotiation process, especially in prisoner exchanges. 

The bilateral relations between Ukraine and the KSA (and with the Global South in general) were negatively affected by the Ukrainian leadership’s reaction to the escalation of the Israeli-Palestinian conflict in October 2023. Kyiv’s condemnation of the Palestinian group Hamas’s attack on Israel on 7 October did not cause much indignation in Riyadh. However, the refusal of Ukrainian representatives at the highest political level to criticise the Israeli Defence Forces’ military operation in the Gaza Strip, where many civilians were killed in the fighting, was met with a negative reaction in Riyadh and the Middle East as a whole. This was evidenced by a Saudi representative’s refusal to attend the summit on the Ukrainian Peace Formula in Malta on 28 October 2023, despite the KSA had actively participated in the previous meeting. During this period, the possibility of a Ukrainian presidential visit to Israel was actively considered. Although Ukraine condemned the Israeli army’s strikes on the Al-Ahli Hospital in the Gaza Strip, this went largely unnoticed in the Arab world compared to news about the possible visit. 

Ukraine’s abstention from voting on the UN General Assembly resolution on the Gaza ceasefire of 13 December 2023 and news of a possible visit by Ukrainian President Volodymyr Zelenskyy to Israel worsened Kyiv’s image among the countries of the so-called Global South and the Saudi leadership. At the same time, Ukraine officially prefers a two-state solution to the conflict – Israel and Palestine – which has a positive impact on Ukraine’s image in Saudi Arabia and the Global South.

The aggravation in the Middle East has not changed the KSA’s intention to play an intermediary role in the Russian-Ukrainian war, as this issue remains important at the political level, and the situation in the Gaza Strip will not fundamentally change Riyadh’s main foreign policy goals. Saudi Arabia continues to work on organising peace talks between the parties and maintains close contact with the Ukrainian authorities.

Ukrainian President V. Zelenskyy’s second visit to Saudi Arabia on 27 February 2024 managed to restore close relations between the countries that had suffered during the initial period of the Israeli-Palestinian conflict escalation. During President Zelenskyy’s meeting with Crown Prince Mohammed bin Salman Al Saud, the parties discussed “the points of the Peace Formula and the progress that can be made in their implementation”. The Ukrainian president raised the issue of returning civilian hostages and deportees from the Russian Federation, which Riyadh could facilitate through its influence. The parties agreed to strengthen cooperation in trade, economy, and digitalisation.

In 2023, the total trade turnover between Ukraine and Saudi Arabia amounted to USD 439.94 million. Exports totalled USD 219.7 million, while imports reached USD 220.2 million. Compared to 2020, when the trade turnover reached USD 820.9 million, the drop in trade was quite significant. In 2023, trade in services between Ukraine and Saudi Arabia was as follows: exports of services from Ukraine totalled only USD 4.41 million, while imports of services reached USD 156,000. The reason for such a sharp drop in trade was problems with the supply of agricultural products (grain, barley, oil) in the first year of Russia’s full-scale aggression due to the blockade of Ukrainian ports, as well as the fighting and occupation of southern Ukraine. The Russian blockade of seaports led to a significant decrease in total exports from 6-7 million tonnes per month to 1.5 million tonnes in 2022. After the Grain Deal was reached in July 2022, the initial losses were partially recovered. In the 2023/2024 marketing year, Ukraine was able to export 34.86 million tonnes of grain.

To understand the structure of trade and economic relations between the two countries, it is worth considering the list of export/import items. In 2023, Ukrainian exports to the KSA included a variety of goods, with the main ones being:

• meat and edible by-products worth USD 105.3 million;
• grain crops amounting to USD 49.9 million;
• fats and oils of animal or vegetable origin amounting to USD 20 million;
• tobacco and industrial tobacco alternatives amounting to USD 15.7 million;
• ferrous metal products amounting to USD 10.01 million;
• meat and fish products amounting to USD 3.04 million;
• milk and dairy products, poultry eggs, honey amounting to USD 2.3 million;
• sugar and sugar confectionery worth USD 1.8 million.

The main categories of Saudi imports to Ukraine included:

• mineral fuels, crude oil and refined products amounting to USD 123.6 million;
• plastics and polymeric materials amounting to USD 86.8 million;
• organic chemicals worth USD 4.4 million;
• fertilisers worth USD 1.6 million;
• medical cotton wool worth USD 1.1 million;
• inorganic chemicals worth USD 1.07 million;
• tanning extracts worth USD 0.8 million.

The upward trend in Saudi agricultural imports is likely to continue despite Russia’s shelling of Ukrainian port cities and attempts to block the grain corridor. As the Saudi government has decided to stop supporting national grain production due to its inefficiency and lack of water resources, and given Saudi Arabia’s interest in importing agricultural products from Ukraine, we can anticipate the establishment of long-term cooperation between the countries. 

Ukrainian-Saudi cooperation in the energy sector is developing rather slowly. The main problem is the difficulty of transporting energy resources from Saudi Arabia to Ukraine, which is exacerbated by the lack of land transport routes and extremely limited maritime transportation capabilities. This is due to the lack of appropriate terminals in Ukrainian ports, the security situation in the Black Sea, and Turkey’s long-standing policy of restricting tanker passage through the Bosphorus. Creating a reliable energy security system and securing Ukraine’s role as the main transporter of hydrocarbons to European countries is a very promising idea for Saudi Arabia. However, in the current geopolitical realities, with intense hostilities on Ukrainian territory, this issue is postponed until the post-war period. 

 

CONCLUSIONS

 

Since the establishment of bilateral relations between Ukraine and the Kingdom of Saudi Arabia, there has been a trend towards rapid development of political and economic cooperation. The last ten years have seen an intensification of intergovernmental and business contacts, largely due to the change of power in the KSA. King Salman bin Abdulaziz and Crown Prince Mohammed bin Salman have launched a major modernisation of the country as part of the Vision 2030 strategy, which includes economic diversification, technological development, digitalisation, socio-cultural transformation, and investment in healthcare, education, science, and sports. Ukrainian agriculture, expertise in aircraft construction, research into serious diseases, and the IT sector have become subjects of active interest to the Saudi leadership. 

Of particular note is the increase in top-level political contacts. Since 2015, Ukrainian presidents have paid four official visits to Saudi Arabia. This trend demonstrates the increased interest of leaders from both countries in strengthening political cooperation. 

After the start of Russia’s full-scale invasion on 24 February 2022, Saudi Arabia adopted a position of “active neutrality”, mediating POW exchanges between Ukraine and Russia. The KSA is involved in organising diplomatic meetings on the peaceful settlement of the Russian-Ukrainian war, such as meetings of national security advisers. 

Given the cultural peculiarities of Saudi Arabia’s foreign policy, personal relationships between state leaders play an important role. Maintaining trusting and close ties with Crown Prince Mohammed bin Salman and other members of the royal family may yield positive results for Ukraine’s image in countries of the so-called Global South, as well as benefits in future trade and economic cooperation. Volodymyr Zelenskyy’s speech at the Arab League summit on 19 May 2023, at the KSA’s invitation, was proof of the importance of the personal factor. Additionally, this event demonstrates Riyadh’s interest in playing a global role in international politics, including in the peaceful resolution of global conflicts.

It is important to avoid official criticism of the royal family’s actions regarding human rights violations and other sensitive issues. The Israeli-Palestinian conflict is equally sensitive for Riyadh. Ukrainian President Volodymyr Zelenskyy’s official support for Israel at the initial stage of the conflict’s escalation dealt a heavy blow to Ukrainian-Saudi relations. The KSA condemns Israel’s military operation in the Gaza Strip and supports the creation of a Palestinian state, which should be taken into account during negotiations. 

Saudi investment opportunities can play a crucial role for Ukraine in preparing for the country’s post-war recovery and supporting existing business projects. It is important to create a favourable investment environment for potential investors, both through personal support from authorities and improved conditions for entering the domestic market. It is necessary to implement an effective investment policy and ensure a transparent legal system to reduce investment risks, etc. The agro-industry, rocketry, aircraft construction, heavy industry, green energy, and IT services appear to be the most promising areas for Saudi investment in Ukraine.

Ukraine has nearly restored its pre-war agricultural exports to Saudi Arabia. The resumption of maritime transport after Ukraine regained control of the northwestern part of the Black Sea, along with the reorientation to alternative transport routes, has allowed it not only to restore previous export volumes but even to increase them. The green energy sector, where Ukrainian specialists have made significant progress, is worth highlighting. As the KSA relies on green energy in its policy, the Ukrainian experience can be valuable for Riyadh.

The issue of intensifying cultural and educational exchanges between the countries remains relevant, although it has been limited during the Russian-Ukrainian war.

Military-technical cooperation will be of great importance, given the mutual interest of both parties in strengthening their own defence capabilities. Saudi Arabia has a long history of relations with the Ukrainian defence industry and has been one of the main buyers of weapons. The latest Ukrainian military developments, tested on the battlefield, could bring significant profits in the future. This could also pave the way for joint arms production. 

On the other hand, Riyadh is not ready to (openly) provide Kyiv with ammunition and various weapons, limiting itself to humanitarian aid. Its geopolitical interests, the Iranian threat, and the maintenance of relations with Russia mean that, at this stage, Saudi Arabia cannot provide military and technical assistance to Ukraine. The transfer of experience from the Ukrainian military to their Saudi counterparts in countering Iranian drones and conducting modern warfare seems promising. 

Threats of port blockades and navigation security are also potentially important topics, especially in the context of the escalating situation in the Red Sea due to the Houthis attacks and other factors.