Ukraine veteran support

2. A herculean policy challenge

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 since 2022, with 2 514 civilians killed and 12 142 injured – the 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 people 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, by February 2026, reconstruction and recovery needs over the 2026-2035 period were estimated to amount 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 Ministry of Veterans, with the aim to provide combatants and veterans with quick access to state and social services. 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 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.

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, Ministry 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 only), 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 Service helped to inform the focus of these outputs. Discussions with other international partners have 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 value-for-money to the Ukrainian Government. The knowledge exchange seminar will focus on how other OECD countries embed systematic 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 assessment, 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 to 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 definitions and methodological standards. In parallel, an initial assessment of Ukraine’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), included a presentation by the Ministry of Health on recent developments and challenges in the health system of Ukraine. Building on this engagement, a structured knowledge exchange between Ukrainian 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 statistics – such as expenditure and resources, health status and risk factors, access and utilisation, and quality of care – to 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:

• 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 institutions 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 practices supporting gender equality. The first workshop “Frameworks, tools and approaches to mainstreaming gender equality” was held in November 2024 and the second on “Policies and practices to tackle the discriminatory gender wage gap and to support women’s representation in leadership positions in private employment” in 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 equal sharing of paid and unpaid work between men and women”. They will be followed by a study visit on “Mainstreaming gender equality”.

• As Russia’s full-scale war of aggression against Ukraine enters its fourth year and Ukrainians endure another brutal winter under attack, the country faces the largest displacement crisis 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-market opportunities and essential legislative reforms cannot be conjured overnight. Preparation must 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 recognises the considerable measures already undertaken by Ukrainian authorities whilst identifying where further adjustments will be needed. The report examines efforts to support internally displaced 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, particularly when paired with rental-market regulation, expanded social housing and meaningful links to employment and public services. Retraining and employment policies matter just as much, helping people adapt to an economy 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 family 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 institution 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 those 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 thinks that the state fulfils its obligations to veterans while this is 43% among veterans themselves (Veteran Fund Ukraine, 2025[14]).