Rehabilitation, Social Protection, and Reintegration of Veterans into Civilian Life

“A Human-Centered Model of a Unified System for the Rehabilitation, Social Protection, and Reintegration of Veterans into Civilian Life” is a study of rehabilitation systems, social protection, and the reintegration of veterans into civilian life, taking into account the context of 2024. The study outlines the current systems, identifies their shortcomings, and offers recommendations for change.
The research was supported by ISAR Ednannia as part of the “Civil Society Sectoral Support Initiative” project, implemented by ISAR Ednannia in consortium with the Ukrainian Center for Independent Political Research (UCIPR) and the Center for Democracy and Rule of Law (CEDEM), with the sincere support of the American people through the United States Agency for International Development (USAID).

Key Points:

• The main flaw of the legal approach that defines the status of veterans in Ukraine lies in its exclusive nature — veterans are treated as a separate category, not fully integrated into society.
• Most of those defending Ukraine during the Russian-Ukrainian war are civilians who joined the Defence Forces. Upon returning, they can make a valuable contribution to the development of society, the state, and communities, provided they receive appropriate rehabilitation and support for reintegration. These are millions of men and women of working age who will need opportunities for self-realization, recognition, and decent employment. This will require a significant redefinition of national and local policies.
• According to the Ministry of Veterans Affairs of Ukraine, by the end of the Russian-Ukrainian war, the number of veterans and their families could reach 5 million. The Institute for Demography and Social Studies projects that by 2033, Ukraine's population may decrease to 26 million. This means that one in five Ukrainians will be a veteran or a family member of a veteran.
• Ukrainian legislation on veterans is outdated; many norms are remnants of the Soviet era. For instance, benefits like “priority access to food products of improved assortment” or “priority free installation of landline phones” are no longer relevant. Modern veterans have different needs.
• The broad definition of “veteran” creates a range of problems: from diffused responsibility among state agencies to conflicts over financial distribution.

Section 1. Rehabilitation

Only 27.6% of surveyed veterans are fully satisfied with the physical rehabilitation system in Ukraine. Only 14.3% believe the psychological rehabilitation system is free from flaws. The current model has numerous problems: too many state actors involved, parallel systems (military and civilian institutions), staff shortages, lack of comprehensive care standards, neglect of veterans' input, lack of awareness among veterans, social isolation, and the reduction of rehabilitation to mere physiotherapy or its substitution with recreation.

For example, studies in military medicine show that acute-phase rehabilitation is generally not conducted in Security and Defense sector medical facilities due to a lack of specialists.

In departmental healthcare facilities, funding is still based on bed counts rather than services. These facilities are not subject to monitoring by the National Health Service of Ukraine (NHSU), leading to inefficient use of funds.

However, the core issue is that within the departmental systems of the Security and Defense sector, patients often lose their agency and are treated as objects of the rehabilitation process, with their needs ignored. Military personnel cannot independently choose a rehabilitation facility that suits their needs. The involvement of family members in the rehabilitation process is also significantly reduced.

The regulations governing rehabilitation in departmental institutions provide for an extremely short recovery period, which often does not meet the needs of the military and hinders full rehabilitation. These facilities also lack a social component in rehabilitation — there are no social workers to assist veterans in accessing services and benefits afterward.

International experience suggests that the most relevant model for Ukraine is one where veterans undergo rehabilitation within the general healthcare system (as in Israel).

The government should fund rehabilitation services through the NHSU using the “money follows the person” model, integrate all departmental systems into the general healthcare system, attract foreign specialists to address the staffing shortage, and redistribute responsibilities among ministries to ensure an effective and understandable system for veterans. It is also essential to increase veterans’ awareness of their rehabilitation rights and strengthen the role of communities in the rehabilitation process.

Section 2. Social Protection

Veterans’ benefits and services are governed by 156 different legal acts and provided by 19 different state bodies. In addition to bureaucratic overload, the system is overly focused on material assistance, even though 89.7% of surveyed veterans support combining financial support with development tools. Only 25.9% of veterans reported satisfaction with the current benefits system.

Social protection laws for veterans are outdated and still include provisions such as “priority admission to gardening associations.” At the same time, the state cannot fulfill all its obligations — as seen with preferential transportation services. Government educational programs for veterans often fail to lead to employment. Most modern veterans do not qualify under the legal definitions required for free medical care in military hospitals after discharge.

The state should revise current benefits with direct input from veterans, simplify and unify documentation processes, redirect funding toward community-based social services, and improve training for social workers to meet the specific needs of veterans. Veterans should be given tools for personal development — including access to education, employment, and opportunities to start their own businesses.

Section 3. Reintegration into Civilian Life

77.5% of surveyed veterans believe they will likely face unemployment after returning to civilian life. 72.8% fear potential substance abuse. 69.4% expect family conflicts.

Ukraine lacks a single agency or legal mechanism responsible for veterans’ reintegration. Most communities are unprepared for the return of veterans — they lack inclusive infrastructure, public awareness policies, accessible information about opportunities for veterans, and psycho-emotional support for veterans’ families. Some employers are hesitant to hire veterans, fearing that physical or mental health issues may hinder job performance.

The state must develop a unified reintegration mechanism and appoint accountable actors. Communities should prepare for veterans’ return by creating barrier-free environments and engaging in public education campaigns. In addition, dialogue with the business sector should be established to promote veteran employment — as work is key to financial independence, psychological adaptation, and social integration.