OCDE - Ukraine veteran support

Policy paper Ukraine veteran supportUkraine veteran support

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UKRAINE VETERAN SUPPORT © OECD 2026

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UKRAINE VETERAN SUPPORT © OECD 2026

By early 2026, more than 1.4 million combatants in Ukraine were registered as veterans, triple the 2022 figure. Once hostilities cease, a massive wave of service members will transition to civilian life – many displaced, many wounded, and many coping with psychological trauma. This scale exceeds anything seen in OECD countries in recent history, while Ukraine simultaneously faces high poverty, demographic decline, reduced public service capacity, and mental health infrastructure severely strained by years of full-scale war. Despite ongoing reforms and the creation of digital tools such as Diia and MARTA, Ukraine’s systems for early needs identification and timely, integrated mental health support remain underdeveloped – yet these are precisely the areas that will determine long-term reintegration success. Building on experience with veteran support policy in Australia, Canada, France, the United Kingdom and the United States, this paper focusses on the transition from military to civilian life and various aspects of mental health policies in that transition.

Abstract4 

UKRAINE VETERAN SUPPORT © OECD 2026

Table of contents Disclaimers 2

Abstract 3 Executive summary 5 1 Key policy priorities for Ukraine’s veterans’ policy 6 2 A herculean policy challenge 8 3 The Ukrainian policy set-up for veterans 11 4 Early intervention in the return to civilian life 13 4.1. Early identification of the needs of transitioning veterans 13 4.2. Characteristics of effective transitioning programmes 14 5 Mental health issues could become a critical bottleneck 16

2025[4]). Different veterans have different needs. Some veterans may need limited support in order to find their way back to civilian life, but many others face a multitude of possibly interacting an d complex needs. Furthermore, needs may change, and while not immediately apparent at demobilisation, issues can become more serious with time. This policy paper focusses on a few elements of veteran support, notably the tran sition from military to civilian life and various aspects of mental health policies in that transit ion. It provides a bird’s -eye view of existing policies in Ukraine and in selected OECD countries. Executive summary6 

UKRAINE VETERAN SUPPORT © OECD 2026

Ukraine faces a veterans’ reintegration challenge of unprecedented magnitude. By early 2026, more than 1.4 million combatants were registered as veterans, triple the 2022 figure. Once hosti lities cease, a massive wave of service members will transition to civilian life – many displaced, many wounded, and many coping with psychological trauma. This scale exceeds anything seen in OE CD countries in recent history, while Ukraine simultaneously faces high poverty, demographic decline, reduced public-service capacity, and mental-health infrastructure severely strained by years of full-scale war. Des pite ongoing reforms and the creation of digital tools such as Diia and MARTA, Ukraine’s system s for early needs identification and timely, integrated mental-health support remain underdeveloped – yet these are precisely the areas that will determine long-term reintegration success. Policy recommendations for Ukraine Strengthen early identification and early intervention during transition. • Introduce mandatory, structured pre-discharge needs assessments covering (mental) health, employability, skills, housing, income situation, and family circumstances. • Create a unified transition pathway linking defence, health, social, employment and education systems to ensure seamless data flow and avoid gaps in support. • Develop a tiered support model : a universal basic package for all transitioning veterans and intensive case management for high-need groups (e.g. heavily wounded, displaced). • Strengthen employment and skills support , including recognition of military competencies,

3 The Ukrainian policy set-up for veterans 11 4 Early intervention in the return to civilian life 13 4.1. Early identification of the needs of transitioning veterans 13 4.2. Characteristics of effective transitioning programmes 14 5 Mental health issues could become a critical bottleneck 16 5.1. Rapidly improving psychological support for veterans in Ukraine 16 5.2. International approaches to supporting veterans’ mental health 18 5.3. Avoiding mistakes and charting a sustainable path forward 19 6 Conclusions 21 References 22

TABLES Table 1. Veterans recorded in the Unified State Register of War Veterans 8 5

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Russia’s full -scale invasion of Ukraine in February 2022 has had a devastating impact on Ukraine’s economy and society. More than 15 000 civilian fatalities and over 41 000 injured until today, millions of people displaced, and widespread destruction of infrastructure (UN Office of the Hi gh Commissioner of Human Rights, 2026 [1]). The war is still ongoing, but already the cost of reconstruction and recovery is estimated to amount to about three times the country’s nominal GDP (World Bank, Government of Ukraine, European Union and United Nations, 2026[2]). Within the purview of the OECD Ukraine Country Programme, and given the rationa le for the work on Social Policy (C/MIN(2023)/3 [3]), this paper focusses on particular aspects of an issue that in importance and size is unparallelled in recent European history: how to provide targeted suppor t that addresses the needs of veterans and their families? In future, this challenge will be even great er as it is estimated that up to 5.5 million Ukrainians, including family members, may hold veteran status in the years to come (EED, 2025[4]). Different veterans have different needs. Some veterans may need limited support in order to find their way back to civilian life, but many others face a multitude of possibly interacting an d complex needs.

systems to ensure seamless data flow and avoid gaps in support. • Develop a tiered support model : a universal basic package for all transitioning veterans and intensive case management for high-need groups (e.g. heavily wounded, displaced). • Strengthen employment and skills support , including recognition of military competencies, employer engagement networks, and dedicated counsellors within employment services. • Build local co-ordination capacity , for example through district-level veteran service centres, drawing inspiration from France’s departmental model. Build a timely, integrated mental-health support system. • Embed mental-health screening into the demobilisation process , making early detection of PTSD and other disorders a routine part of transition. • Ensure continuity of care by strengthening co-ordination between military health services and civilian mental-health providers. • Expand the mental-health workforce rapidly , using accelerated training pathways in trauma-focussed therapies, task-shifting to mid-level professionals, and struc tured peer-support networks. • Scale up community-based mental-health services to reach veterans and families early, reduce stigma, and ensure coverage for underserved rural and displaced populations. • Develop targeted programmes for high-risk groups, including severely injured veterans, those experiencing social isolation, and families facing cumulative stress. 1 Key policy priorities for Ukraine’s veterans’ policy 7

UKRAINE VETERAN SUPPORT © OECD 2026

This policy paper focusses on a few elements of veteran support, notably the tr ansition from military to civilian life and various aspects of mental health policies in that transit ion. It provides a bird’s -eye view of existing policies in Ukraine and in selected OECD countries and informs on work by the OECD Directorate on Employment Labour and Social Affairs in the context of the OECD Ukraine Country Programme (Box 1).8 

UKRAINE VETERAN SUPPORT © OECD 2026

Russia’s full -scale invasion of Ukraine in February 2022 has had a devastating impact on Ukraine’s economy and society, involving many civilian fatalities and injuries, large -scale civilian displacement, and

UKRAINE VETERAN SUPPORT © OECD 2026

Russia’s full -scale invasion of Ukraine in February 2022 has had a devastating impact on Ukraine’s economy and society, involving many civilian fatalities and injuries, large -scale civilian displacement, and widespread destruction of infrastructure. 2025 was the deadliest year for civilians s ince 2022, with 2 514 civilians killed and 12 142 injured – t he total number of casualties was up by 31% resp. 70% compared with 2024 resp. 2023 (UN Human Rights Monitoring Mission in Ukraine (HRMMU), 2026 [5]). Furthermore, with the intensified targeting of the energy sector, hundreds of thousands of peopl e are suffering in freezing temperatures (UN Human Rights Monitoring Mission in Ukraine (HRMMU), 2026 [6]). Internal displacement and economic uncertainty contribute to economic deprivation, and, in 2024, poverty rates stood at an estimated 37% (World Bank, 2025 [7]). Because of the widespread destruction, b y February 2026, reconstruction and recovery needs over the 2026-2035 period were estimated to amo unt to a staggering USD 588 billion – about three times nominal GDP (World Bank, Government of Ukraine, European Union and United Nations, 2026 [2]). Nevertheless, the Ukraine economy has proven to be resilient and is projected to remain so, but a full recovery can only materialise upon a cessation of hostilities

(OECD, 2025[8]).

Ukraine has established a state register of war veterans, administered by the Minis try of Veterans, with the aim to provide combatants and veterans with quick access to state and social serv ices. The register included over 1.4 million combatants per 1 January 2026, triple the number recorded in 2022 (Table 1). Almost 150 000 persons with disabilities were included in the register as of 1 January 2026. Table 1. Veterans recorded in the Unified State Register of War Veterans The number of combatants and veterans whose information has been entered into the Unified State Register of War

Almost 150 000 persons with disabilities were included in the register as of 1 January 2026. Table 1. Veterans recorded in the Unified State Register of War Veterans The number of combatants and veterans whose information has been entered into the Unified State Register of War Veterans, as per 1 January for the 2022-2026 period 2022 2023 2024 2025 2026 Number of combatants whose information has been included 439 377 455 228 730 010 1 071 499 1 417 385 Number of war veterans whose information has been included n.a. n.a. n.a. 159 932 163 009 Number of persons with disabilities due to war whose information has been included n.a. n.a. n.a. 119 678 143 390

Note : n.a. = information not available.

Source: https://data.gov.ua/dataset/034f43a4-133a-498f-8478-6076ed1013e4. 2 A herculean policy challenge 9

UKRAINE VETERAN SUPPORT © OECD 2026

Box 1. Work by the OECD Directorate of Employment, Labour and Social Affairs in the context of the OECD Ukraine Country Programme The OECD Ukraine Country programme launched at the Meeting of the OECD Council of Ministers, 7-8 June 2023 in Paris (C/MIN(2023)/3, 2023[3]), refers to different pieces of work by the Directorate of Employment, Labour and Social Affairs (ELS). It includes a “ Social Policy Review ” that after discussions with Ukrainian authorities was designed to cover three outputs:

1. Targeted support for veterans : knowledge exchange and associated short report (covered here). Desk research was undertaken in in the first part of 2025, and questionnaires were sent to and/or associated information meetings were held in July-August 2025 with a range of stakeholders: the Ministry of Social Policy, Family and Unity, Ministr y of Veterans Affairs,

here). Desk research was undertaken in in the first part of 2025, and questionnaires were sent to and/or associated information meetings were held in July-August 2025 with a range of stakeholders: the Ministry of Social Policy, Family and Unity, Ministr y of Veterans Affairs, Ministry of Health, Ministry of Economy, Environment and Agriculture, Ministry of Defence (written answers only), Ministry of Education and Science (written answers on ly), Ministry of Internal Affairs (written answers only) and a range of non-government organisations such as, Veteran Support and Development Centres , Ukrainian Veterans Foundation, the Veteran hub and Prynzyp. Based on these discussions, two topics – the transition into civilian life and mental health issues – were identified for focussed discussion on the Knowledge Exchange Event that took place in December 2025 (OECD, 2025[9]) and reported here.

2. Promoting evidence-informed employment services: Knowledge exchange and associated short report. Discussions with the Ministry of Economy and the State Employment S ervice helped to inform the focus of these outputs. Discussions with other international partners ha ve confirmed the current gap in evidence generation, and on an evidence strategy more generally, on the effectiveness of Ukraine’ s active labour market policies (ALMPs) at improving employment outcomes and providing valuefor-money to the Ukrainian Government. The knowledge exchange seminar will focus on how other OECD countries embed system atic evaluation of their ALMPs. It will include examples, where possible, of how public employment services are using digital tools to deliver services, such as skills assess ment, and how these tools are evaluated. The accompanying short report will summarise the learning from this event and produce an outline evaluation strategy for Ukraine that will allow it to leverage evidence t o improve the effectiveness of its suite of ALMPs.

3. Supporting Ukraine in the reporting of international health statistics : Knowledge exchange and short report. In 2026, for the second consecutive year, OECD and joint OECD/Eurostat/WHO data questionnaires have been transmitted to the relevant Ukrainian authorities, supporting continuity in reporting and deepening familiarisation with international

3. Supporting Ukraine in the reporting of international health statistics : Knowledge exchange and short report. In 2026, for the second consecutive year, OECD and joint OECD/Eurostat/WHO data questionnaires have been transmitted to the relevant Ukrainian authorities, supporting continuity in reporting and deepening familiarisation with international definitions and methodological standards. In parallel, an initial assessment of Uk raine’s health data capacity and health information infrastructure was undertaken, drawing on the OECD Survey on Health Data Capacity and subsequent technical exchanges. Ukraine’s active participation in the 2025 Working Party on Health Statistics (WPHS), inclu ded a presentation by the Ministry of Health on recent developments and challenges in the health sy stem of Ukraine. Building on this engagement, a structured knowledge exchange between Ukrain ian officials and the OECD Health Division is planned, focussing initially on health data infrastructure and governance arrangements. This will be complemented by two to three further thematic workshops covering key domains of health statistic s – such as expenditure and resources, health status and risk factors, access and utilisation, and quality o f car e – t o strengthen Ukraine’s reporting of health indicators in line with international standards.

The Ukraine Country Programme also includes work on Gender Equality, as well as Labour migration and Reintegration Policy reviews:10 

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• Capacity building to support the implementation of the OECD Gender Recommendations most notably the 2013 Recommendation on Gender Equality in Education, Employment and Entrepreneurship (OECD, 2013 [10]) and the 2015 Recommendation on Gender Equality in Public Life (OECD, 2016[11]) aims to strengthen gender equality and contribute to the eradication of gender-based violence. Strengthening the capacity of policymakers and institut ions to advance gender equality in key policy areas (employment, entrepreneurship, gender -based violence and public life) while mainstreaming the gender lens across policies. The work envisages a set of five online workshops and a study visit on policies and pr actices supporting gender equality. The first workshop “Frameworks, tools and approaches to mainstre aming

persons within Ukraine, to prepare for the return of those displaced both internally and abroad, and to engage the global Ukrainian community in recovery. The analysis makes clear that credible security guarantees and a broader sense of safety and trust are essential for sustainable return. Housing also emerges as critical, particul arly when paired with rentalmarket regulation, expanded social housing and meaningful links to employment a nd public services. Retraining and employment policies matter just as much, helping people adapt to an econ omy transformed by war rather than expecting a simple return to what existed before. About two-thirds of the adult Ukrainian population have veterans among their famil y members and close friends. Almost 80% of Ukrainians are confident that society respects veterans, but this percentage is only 60% among veterans. The Armed Forces of Ukraine retain the highest level of trust among respondents and just over half of the Ukrainians surveyed consider the army the most reliable ins titution in the country (Gradus Research Company, 2025[13]). Trust in volunteer organisations (23%) and the President of Ukraine (21%) remains significantly lower but stable. Veterans identify two main areas where they most need support – financial support (50%) and medical support (43%). More than a quarter of tho se surveyed in 2025 also indicated that they need psychological support (28%) and housing (26%). One in ten veterans stated they currently did not need support. Almost one-third of respondents think s that the state fulfils its obligations to veterans while this is 43% among veterans themselves (Veteran Fund Ukraine, 20 25[14]). 11

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Ukraine inherited its social protection system from the former Soviet Union which ha d a strong focus on pensions for the elderly and people with disability as well as nationals d eserving of support due to past state service (OECD, 2011 [15]). In 2023, public spending on pensions amounted to 11.6% of GDP, while public and private expenditure on health amounted to 8% of GDP in 2021 (OECD, 2025[8]). However, social

violence and public life) while mainstreaming the gender lens across policies. The work envisages a set of five online workshops and a study visit on policies and pr actices supporting gender equality. The first workshop “Frameworks, tools and approaches to mainstre aming gender equality” was held i n November 2024 and the s econd on “Policies and practices to tackle the discriminatory gender wage gap and to support women’s representation in leadership positions in private employment” i n September 2025 . Forthcoming workshops will focus on “Eradicating gender -based violence (as a key priority for gender equality”, “Policies and programmes to reduce the gender gap in entrepreneurship”, and “Policies and practices supporting women’s labour market participation and a more eq ual sharing of paid and unpaid work between men and women”. They will be followed by a study visit on “Mainstr eaming gender equality”. • As Russia’s full-scale war of aggression against Ukraine enters its fourth year and Ukrain ians endure another brutal winter under attack, the country faces the largest displacement cris is in Europe in recent history. Safe, large-scale returns remain impossible, yet the groundwork for sustainable return and reintegration must begin now. Housing policies, labour-m arket opportunities and essential legislative reforms cannot be conjured overnight. Preparation mu st start well before security permits people to come home. A new OECD review, Ukraine’s Strategic Response to the Displacement Crisis: Return, Reintegrate, Reconnect (OECD, 2026[12]), offers a comprehensive assessment of Ukraine ’s institutional framework and policy response to displacement. Building on extensive OECD work in this area, it recognis es the considerable measures already undertaken by Ukrainian authorities whilst identify ing where further adjustments will be needed. The report examines efforts to support internally displac ed persons within Ukraine, to prepare for the return of those displaced both internally and abroad, and to engage the global Ukrainian community in recovery. The analysis makes clear that credible security guarantees and a broader sense of safety and trust are essential for sustainable return. Housing also emerges as critical, particul arly when paired with rentalstate service (OECD, 2011 [15]). In 2023, public spending on pensions amounted to 11.6% of GDP, while public and private expenditure on health amounted to 8% of GDP in 2021 (OECD, 2025[8]). However, social expenditure has declined in real terms since 2022, in view of other public polic y priorities. Defence spending now amounts to 25% of GDP and the budget deficit has grown to an estimated 20% of GDP in 2026, notwithstanding important external support through grants and loans (OECD, 2025 [8]). Public support for veterans is embedded in legislation “On the Status of War Veterans and Guarantees of Their Social Protection", which establishes the benefits combatants, veterans and their family members are entitled to (Government of Ukraine, 2025 [16]). The benefits can be grouped into medical, utility, land and housing, transportation, educational and family benefits (Box 2 provides a conc ise summary view of the Canadian system of veteran support). The benefits include, for example, free medi cine and medical devices prescribed by doctors and priority access to medical services; discounts on rent and utilities; allocation of land plots for individual housing construction, gardening and hortic ulture; preferential terms on loans for housing; free urban passenger travel; and full or partial payment of tuition fees. In the event of disability and (partial) loss of the capacity to work upon discharge from mi litary service, veterans are entitled to a one-o ff financial benefit. Payment rates vary with the degree of disability and in 2025, the maximum payment amounted to 400 times the subsistence minimum – Ukrainian hryvnia (UAH) 1 211 200, about USD 28 000 (Ministry of Defence of Ukraine, 2025 [17]). Overall, budget constraints impinge on benefit delivery. Support for veterans involve a range of different government departments. The Ministry of Defence is responsible for the discharge out of military service, which includes the provision of information and legal support, registration of veteran status, and access to benefits through Territorial Centers for Recruitment

impinge on benefit delivery. Support for veterans involve a range of different government departments. The Ministry of Defence is responsible for the discharge out of military service, which includes the provision of information and legal support, registration of veteran status, and access to benefits through Territorial Centers for Recruitment (TCCs). The Ministry of Health supports medical recovery and psychological stabilisation through guaranteed medical services, psychological support, and rehabilitation. The prov ision of prosthetics, housing and social assistance is the responsibility of the Ministry of Social Poli cy, Family and Unity, while professional development and (re-)training is in the remit of the Ministry of Edu cation and Science . The Ministry of Economy, Environment and Agriculture is responsible for the delivery of employment services through the State Employment Service which also provides entrepreneurship support. Local governments and central government agencies implement a range of state programmes and veteran ben efits (e.g. housing, subsidies, healthcare, etc., but non-government organisations (N GOs) often funded by outside donors, play a key role in both the delivery of support and in veterans’ policy development. The Ministry of Veterans Affairs is mandated to co-ordinate Ukraine’s veteran support system with its many different players as laid down in its “Veteran Policy Strategy for 2023” which aim s to foster human capital and well-being of veterans and their families. In 2026, the budget targeted at support for veterans (i.e. over and above public services such as general health services that are used by veterans) UAH 18.9 billion (about USD 436 million) for veteran support (Government of Ukraine, 2025 [18]); about 6% of the overall state budget (Ministry of Finance of Ukraine, 2026 [19]). This includes UAH 5.6 bn for housing of veterans 3 The Ukrainian policy set-up for veterans12 

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with disabilities, as well as the provision of a range of services and other supports such as programmes of the Ukrainian Veterans Fund of the Ministry of Veteran Affairs, veteran development centres at universities

3 The Ukrainian policy set-up for veterans12 

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with disabilities, as well as the provision of a range of services and other supports such as programmes of the Ukrainian Veterans Fund of the Ministry of Veteran Affairs, veteran development centres at universities for professional development and retraining, training of specialist support staff – often veterans themselves, dental prosthetics, education for children of veterans, etc. These initiatives are importa nt and often creative, but overall, they are too small to address the dire need for support. Box 2. A system of veteran support: Canada Systems of veteran support vary across countries. Nevertheless, the Canadian set-up may serve as an example as it contains many elements present in other national systems (Government of C anada, 2026[20]; 2020[21]). Supports are grouped along different categories, including: • Mental and physical health – e.g. counselling and compensation for your mental health needs, such as PTSD or depression, or assistance and compensation for knee, back or other physical injury or health needs. • Financial programmes and services, e.g. veteran benefits navigator, income support for unemployed veterans or in low-paid employments, veterans disability benefits for veterans • Education and j obs – Employment services and supports for education, training and related costs. • Housing and home life – Housing assistance, getting help at home, long-term care supports • Family and caregivers – benefits and services for family members such as mental health resources for family members, family peer supports, bereavement support, caregiver recognition benefit. • Remembrance – memorials and initiatives to increase the recognition of service by veterans. The Canadian system also includes support for those with service in the Royal Canadian Mounted Police. Veteran policies in other countries may also apply to other services. In Ukraine the Ministry of Internal Affairs covers veterans of the National Police of Ukraine, the National Gua rd of Ukraine, the State Border Guard Service of Ukraine, and the State Emergency Service of Ukraine. One notable innovation is the development of digital support systems in Ukraine, which started as an effort

Internal Affairs covers veterans of the National Police of Ukraine, the National Gua rd of Ukraine, the State Border Guard Service of Ukraine, and the State Emergency Service of Ukraine. One notable innovation is the development of digital support systems in Ukraine, which started as an effort to improve public sector integrity and r