IOM_UKR_Veteran Profiles and Reintegration Challenges in Ukraine_March_2025

VETERAN PROFILES AND REINTEGRATION CHALLENGES IN UKRAINE

THEMATIC BRIEF

MARCH 2025

INTRODUCTION

The number of veterans in Ukraine has been growing significantly since February 2022, adding to a population of former military service members from the war that began in 2014. Projections suggest that, as the war continues, the combined number of veterans, their family members, individuals with disability resulting from war, and the families of fallen soldiers could reach between four and five million.1

To support targeted and evidence-based support to veterans in Ukraine, IOM's General Population Survey (GPS) has, since July 2024, identified civilians who self-reported that they had previously been engaged in official military tasks or engaged in other armed services.2

Under the Law of Ukraine “On the Status of War Veterans and Guarantees of Their Social Protection,” individuals who participated in the defense of the homeland or in combat operations abroad are considered war veterans. Specifically, Article 4 defines these groups as combatants, persons with disabilities due to war, and war participants who hold relevant state-issued certificates and are registered in the national Unified State Register of War Veterans.3

However, in this study, the concept of 'veteran' is broader than the definition in Ukrainian law. The GPS categorises as veterans those who carried out official military assignments since April 2014 but were civilians at the time of the survey. The term 'veteran' is therefore applied throughout this report to refer to these self-identified discharged servicemen or women, acknowledging the divergence from Ukraine’s legal definition.

This approach, though broad, includes only civilians and is focused on generating data about discharged servicemen and women that can be used in the design and targeting of policy and programmes that aim to support reintegration in their communities. Thus, those deemed 'veterans' in this study may have completed assignments through service in the Armed forces of Ukraine (AFU), the National Guard of Ukraine (NGU), the State Border Service of Ukraine (SBSU), or the Security Service of Ukraine (SBU), but does not apply to individuals who have only received initial military training as part of their military service. A respondent’s categorisation as a veteran is based solely on self-identification and not on the possession of a state-issued certificate.

Based on estimates across three rounds of IOM's nationwide survey, three per cent of Ukraine's adult population (an estimated 936,000 people) self-identified as fitting this definition of a 'veteran'. While this estimate differs from official statistics in its definition and methodological scope — excluding as it does active-duty personnel, residents of non-government controlled areas and those without mobile phone access — it aims to inform programming and policy that aim to support veterans and their integration, using the most accurate representative surveying techniques available in Ukraine.

In addition to the increasing veteran population, there is growing evidence that veterans’ needs and challenges to re-integrate to civilian life persist as the war continues. According to the REACH Veterans’ Reintegration study, many returning service members are confronted by fragmented state and non-state services — often complicated by lengthy administrative procedures for obtaining official status, limited mental health and psychosocial support (MHPSS) coverage, and a labour market constrained by war. Additionally, the REACH study identified a social divide between veteran and civilian populations that poses a significant barrier to reintegration. In fact, the Government of Ukraine’s National Recovery Plan4 acknowledges these gaps, prioritising targeted and effective social policy to support the transition from military to civilian life. Yet the impact of large-scale internal displacement, infrastructure damage, and economic disruption has made its practical implementation more challenging.5

The current situation reflects — on a much larger scale — the challenges documented during the 2014-2022 war era. Research by the Global Public Policy Institute (prior to the full-scale invasion of 2022) identified multiple reintegration challenges in Ukraine, including bureaucratic hurdles for obtaining veteran status, limited psychosocial rehabilitation services, widespread unemployment, social stigma, and isolation. Veterans often faced difficulties securing meaningful employment and struggled with lasting mental health concerns.6 In the current context — where the veteran population is expanding — these issues risk becoming significantly more acute if not addressed systematically.

The purpose of this report is to provide an analysis of Ukraine’s growing veteran population and their reintegration challenges, focusing on key areas such as MHPSS, livelihoods, social cohesion, and disability-related needs. Utilising data collected between July and December 2024 (Rounds 17-19 of IOM's General Population Survey (GPS)), this report aims to support evidence-based programming, policy-making, advocacy, and further research on strategies to improve veterans’ access to essential services, foster social inclusion, and enhance reintegration efforts in Ukraine.

This report draws on a probabilistic sample that combines responses from a short 'screener' survey, as well as responses to an in-depth individual survey, which was supplemented by a targeted, 'booster' sample of veteran respondents. The comparative analysis of veterans and non-veterans primarily relies on the main survey dataset, while the combined dataset provides a more in-depth view of veterans’ specific vulnerabilities, needs, and characteristics. Any figures derived from the combined dataset are clearly highlighted with an accompanying footnote.

The following sections explore key thematic areas, including veteran profiles, mental health, disability and health-related needs, livelihoods, and social cohesion, illustrating the interconnected nature of veterans’ needs.

1 Ministry of Veterans Affairs of Ukraine,Yulia Laputina, The Ministry of Veterans is consistently implementing the project ‘Development of Sports for Veterans’ as part of creating a barrier-free space in Ukraine

2 Data in this report are drawn from IOM’s General Population Survey Rounds 17-19 (July-December 2024), where each round included approximately 40,000 telephone-based screening interviews. A respondent was classified as a veteran if they confirmed being a civilian (not currently serving) and reported having been directly involved in the execution of official military tasks since April 2014. When further clarification was requested, “official military tasks” were explained to encompass service in the Armed Forces of Ukraine (AFU), the National Guard of Ukraine (NGU), the State Border Service of Ukraine (SBSU), or the Security Service of Ukraine (SBU), excluding only basic military training as part of compulsory military service.

3 Verkhovna Rada of Ukraine, On Status of War Veterans, Guarantees of Their Social Protection

4 Ukraine Recovery Conference, Ukraine’s National Recovery Plan

5 REACH, Veterans’ Reintegration, April 2024.

6 GPPI, Julia Friedrich, Theresa Lütkefend, Reintegrating Veterans and Fostering Social Cohesion in Ukraine, August 2020 – December 2020.

KEY FINDINGS

The veteran population is growing and predominantly comprises working-age individuals. The data collected between October and December 2024 (Round 19) found that 3 per cent of Ukraine’s adult population, amounting to an estimated 936,000 individuals across Ukraine self-identified as veterans. They were mostly men (89%) and predominantly aged between 35 and 59 (63%).

Veterans struggle to secure stable employment and effective retraining opportunities. While 58 per cent of working-age veterans reported being employed, compared to 67 per cent of non-veterans, veterans were more than twice as likely to be actively job-hunting (42%, compared to 18% of non-veterans). External studies corroborate that 30 per cent of veterans could not find stable work, nearly 60 per cent reported that they had insufficient income to meet their basic needs, and two-thirds were unaware of the Government-provided vocational training programmes.7 In addition, veterans were significantly more likely to resort to negative coping mechanisms compared to non-veterans — such as skipping debt repayments or having one or more household member leave their current location to find work — further demonstrating the added financial strain they endure.

Many veterans continue to face challenges in securing the comprehensive rehabilitation and longterm health care they need. Across three survey rounds, veterans consistently reported higher rates of disability and unmet health needs. By December 2024, 40 per cent of veterans cited a need for medical care — significantly above non-veterans (30%). Additional evidence from external sources suggest that many injured veterans do not receive timely, adequate services in state hospitals, prompting them to seek costly private options.8

Veterans report mental health difficulties and the need for psychosocial support. In August 2024, around a third of veterans (33%) reported having symptoms of depression. Around a quarter (25%) indicated that either themselves or someone in their household need psychological counseling, yet stigma, limited resources, and cultural norms often impede help-seeking.9

Veterans confront social reintegration challenges, even as they actively engage in community decision-making. Veterans frequently engage in civic and community processes — 56 per cent reported participating in local decision-making, compared to 33 per cent of non-veterans. However, 24 per cent of veterans perceived intergroup tensions in their communities, nearly double the rate of non-veterans, and female veterans were particularly affected.

7 Ukrainian Veterans Foundation, Employment of Veterans: What the Analysis of Ukrainian Legislation and the Study of the Best Practices of International Experience Showed , Ukrainian Veterans Foundation,

The New Lines Institute, Lena Denman, The Importance of Aiding Ukrainian Veterans

(Current Needs and Visions of Opportunities for Career and Professional Growth of Veterans).

VETERAN PROFILES

SOCIO-DEMOGRAPHIC CHARACTERISTICS

GENDER AND AGE DISTRIBUTION

According to round 19 of the GPS, 3 per cent of respondents (equivalent to approximately 936,000 individuals nationwide) identified as veterans, i.e., reported having been directly involved in the execution of official military or security-related duties since April 2014, as defined in a bluebox on page no. 2. Of these, the majority (89%) were male, while 11 per cent were female.

Examining age distribution, 18-34-year-olds represented 20 per cent of the veteran population (slightly higher than 16 per cent among nonveterans), while 63 per cent of veterans fall into the 35-59 age group (compared to 46 per cent of the non-veteran). The veteran population is, therefore, unique in that it consists predominantly of working-age men.

GEOGRAPHICAL DISTRIBUTION

Veterans were primarily concentrated in Ukraine’s western and northern macro-regions, with 28% and 22% residing in these areas, respectively. At the oblast level, the oblasts hosting the highest proportion of veterans included Kyivska, Dnipropetrovska, and Kyiv City — each accounting for about 9% of the veteran population — while Lvivska and Zhytomyrska accounted for roughly 7% and 6%, respectively.

HOUSEHOLD COMPOSITION

Veteran households appear more likely to include multiple members. In Round 19, 41 per cent of veteran households comprised four or more members, compared to 25 per cent in non-veteran households. Similarly, single-person households were slightly less prevalent among veterans (19% vs. 23% among non-veterans).

SETTLEMENT TYPE

While non-veterans largely reside in cities, 63 per cent of veterans reported living in rural areas or small towns. Such settlement patterns may impact veterans’ access to specialized health care and employment opportunities, especially in sparsely resourced raions.

A key driver of larger household sizes is the higher presence of children. Eighteen (18%) per cent of veterans reported at least one child aged 1-5, compared to 10 per cent among non-veterans; while 35 per cent of veterans had children aged 6–17, compared to 28 per cent among non-veterans. Female veterans, however, were more likely to report living in single-parent households (7%) than their male counterparts (2%).

MENTAL HEALTH AND PSYCHOSOCIAL SUPPORT (MHPSS)

Veterans reported experiecing symptoms of depression within the two weeks prior to data collection — 35% indicated a lack of interest or pleasure in activities on more than half the days, while 23% experienced feelings of sadness, hopelessness, or depressed mood on more than half the days.

As a result, around a third of veterans (33%) were found to have symptoms of depression. They were also more likely to engage in adverse coping strategies,12 such as reducing essential education expenditures (12%, compared to 6% for non-veterans), skipping

10 IOM Ukraine, General Population Survey, Round 17

debt payments (29% compared to 17% for non-veterans), or relying on high-risk, informal income sources (16% compared to 6% for non-veterans).1310This can lead to a cyclical relationship wherein deteriorating mental health contributes to economic precarity, and vice versa.

NEED FOR MHPSS SERVICES

Moreover, 25 per cent of veterans reported that either themselves, or members of their households needed psychological counseling or therapy, compared to 19 per cent of non-veterans.

11 The Patient Health Questionnaire-2 (PHQ-2) was used to identify symptoms of depression among respondents. (a) Over the last two weeks, how often have you experienced little interest or pleasure in doing things? (b) Over the last two weeks, how often have you felt down, depressed or hopeless? The responses to these questions are combined to yield a final score. The final PHQ-2 score can range from 0 to 6, with a score of 3 or greater considered likely to indicate a major depressive disorder. While indicating the possible prevalence of depressive disorder – and, more importantly, differences between groups – PHQ-2 results do not represent accurate estimates of the prevalence of depression in a population for which more accurate screening would be required (and which would likely lead to significantly lower rates).

12 IOM Ukraine, General Population Survey, Round 19.

13 Combined dataset.

At the same time, in many cases stigma and limited health-care infrastructure impede timely intervention. Other reports indicate that many veterans hesitate to seek mental health assistance, often viewing it as a sign of weakness or fearing negative judgments from employers and the community — a reluctance that may delay early diagnosis and

DISABILITY & HEALTH

worsen existing conditions.14 The situation gets even more complex, as there is, reportedly, general lack of critical mental health resources in Ukraine. Moreover, male veterans tend to prefer therapists with frontline experience.15

Veterans were consistently more likely than non-veterans to report having a disability or living in a household with persons with disabilities, as nearly 47 per cent of veteran households include at least one member with a disability, compared to 29 per cent among non-veterans.

21 per cent of veterans self-identified as having a disability17, compared to 13 per cent of non-veterans. The share of veterans with disabilities was higher among men aged 46–59 and varied by region; for instance, nearly 29 per cent of veterans in Dnipropetrovska Oblast indicated having a disability.18 Additionally, 22 per cent of male veterans reported a disability versus 10 per cent of female veterans.19

Other reports also highlight the issue of a surge in the number of wounded veterans — some estimates point to 300 new amputees per day, and upwards of 100,000 veterans needing rehabilitation. The current rehabilitation infrastructure, such as specialized spinal or prosthetics facilities, is reported to be inadequate for such scale.20

HEALTH AND MEDICINE NEEDS

Veterans were more likely to report having health-related needs compared to non-veterans. In Round 19, 40 per cent of veterans reported needing health services, such as consultations, treatments, or rehabilitative care, compared

to 30 per cent among non-veterans. Similarly, 25 per cent of veterans expressed a need for disability support services, whereas 21 per cent of non-veterans reported the same. The need for medicines was nearly the same across both groups (35% vs. 36%).

2. Reported disability rates and health needs among veterans vs. non-veterans

The need for health services among veterans was the highest in the Centre (31%), North (32%), and Kyiv City (33%).21 In some cases, perceived need may reflect barriers to service availability and affordability in certain areas, as well as the heightened vulnerability of households with chronically ill members. In macro-region North, for instance, veterans in households with at least one individuals with

chronic health conditions were more likely to report a need for medication (53%).22

Other reports also suggest that Ukraine’s health care staffing shortagesexacerbated by emigration of medical professionals — worsen service bottlenecks for severely injured veterans.23

LIVELIHOODS & ECONOMIC SECURITY

INCOME AND EMPLOYMENT RATES

Since the beginning of the war, the median available monthly household income per person amounted to UAH 5,000 per person for both veteran and non-veteran.

When asked about their household’s income sources in the three months prior to data collection, 61 per cent of veterans indicated receiving a regular salary, compared to 55 per cent of non-veterans. Veterans were also significantly more likely to report relying on irregular earnings — for instance, occasional or short-term work — (18% vs. 12%), as well as on social benefits (17% vs. 9%) and disability

TYPES OF EMPLOYMENT AND BARRIERS

Employed veterans (regardless of age) included a mix of regular employees (39%, compared to 42% among nonveterans) as well as self-employed individuals and small business owners (14%, compared to 8% among nonveterans). Among those looking for a job, 45 per cent veterans cited low salaries as their main challenge, compared to 29 per cent in the

INCOME-EARNING OPPORTUNITIES

Forty-two per cent of veterans (regardless of age) reported needing additional income-earning opportunities, compared to 30 per cent of non-veterans. However, when focusing exclusively on the working-age demographic (18–60), the gap narrows considerably (both 39%), suggesting that older veterans or those with complex health needs drive the higher overall figure. Regardless of age, the share of veterans seeking new or better income opportunities ranged from 36 per cent in the South and West to 42 per cent in the East, North, and Kyiv City.26

COPING STRATEGIES

Veterans were substantially more likely to report resorting to coping mechanisms to meet their basic needs which may have long-term negative effects on household stability. Among others, 54 per cent reported spending their savings, 29 per cent skipped debt repayments, and 10 per cent moved a household member elsewhere in search of work — three times the rate among non-veterans. Moreover, 24 per cent

benefits (22% vs. 10%), compared to non-veterans. Meanwhile, 58 per cent of working-age (18-60) veterans reported being employed at the time of the data collection, compared to 67 per cent of the general population. While the overall unemployment rate (10% for veterans vs. 11% for non-veterans) appears similar, veterans were more likely to have exited the labor force due to retirement (19%) or permanent disability or sickness (7%). Moreover, the proportion of working-age veterans who reported actively looking for a job (42%) was more than double than non-veterans (18%).

overall population. Meanwhile, 14 per cent of veterans identified sickness or disability as a key barrier, roughly double the rate reported by non-veterans (7%), echoing the high disability prevalence among veterans.25 Ensuring accessible workspaces is essential to enable current and future veterans to fully participate in the labour market, a critical factor for Ukraine’s recovery and social cohesion.

At the same time, other sources indicate that nearly 60 per cent of veterans need financial support, with over 40 per cent dissatisfied by existing aid measures, and 30 per cent unable to secure stable employment. Gaps in information further hamper professional reintegration, as two-thirds of veterans were reportedly unaware of state-sponsored retraining platforms (Education for Veterans), and 53 per cent claimed that expanding the range of training fields is critical for landing viable jobs.27

accepted lower-skilled or lower-paid jobs, and 16 per cent engaged in potentially unsafe or illegal work. At the same time, while veterans were less likely than non-veterans to report a reduction in food quantity or switching to cheaper diets, around 14 per cent of them reported asking strangers for money — again, nearly three times the rate among non-veterans.

24 IOM Ukraine, General Population Survey, Round 19.

25 IOM Ukraine, “Employment, Mobility and Labour Market Dynamics in Ukraine”, November 2024.

26 Combined dataset.

27 https://veteranfund.com.ua/2024/07/02/pratsevlashtuvannia-veteraniv-shcho-pokazav-analiz-ukrainskoho-zakonodavstva-ta-doslidzhennia/ (Ukrainian Veterans Foundation, “Employment of Veterans: What the Analysis of Ukrainian Legislation and the Study of the Best Practices of International Experience Showed”), https://veteranfund.com.ua/analitics/aktualni-potreby-ta-bachennia-mozhlyvostey-dlia-kar-iernoho-i-profesiynoho-zrostanniaveteraniv/ (Ukrainian Veterans Foundation, “Актуальні

SOCIAL COHESION

PERCEIVED TENSIONS AND COMMUNITY DYNAMICS

Veterans were more likely to report intergroup tensions within their communities, 24 per cent of them reported experiencing or observing such tensions in the previous 12 months, compared to 13 per cent among non-veterans.

These perceptions were more frequently mentioned among veterans residing in large cities (26%) and among those employing emergency coping strategies. Veterans with disabilities or living in households with chronically ill members also reported slightly higher rates of tension, reflecting the compounding effects of both socioeconomic and healthrelated vulnerabilities.29 Ensuring adequate support services for these groups is therefore crucial to reducing tensions and promoting social cohesion within communities.

Findings from IOM’s Social Reintegration of Veterans in Ukraine study adds further nuance to these patterns. While more than half veterans surveyed in this study (52%) reported that their military service did not alter their sense of belonging to their community, 19 per cent felt it had worsened, particularly among female veterans (24 per cent of whom reported a significant deterioration). Discrimination concerns were also expressed in the report as around 15 per cent of veterans said they had experienced or witnessed discrimination based on veteran status in the past six months. This figure rose to 32 per cent for female veterans — indicating that women often encounter additional barriers.30

ATTITUDES TOWARD ARRIVAL AND PRESENCE OF PEOPLE FROM OTHER AREAS OF UKRAINE IN THEIR COMMUNITY DUE TO THE WAR

A large majority — 82 per cent of veterans and 88 per cent of non-veterans — expressed positive attitudes toward newcomers from other parts of Ukraine. Among veterans with monthly incomes above the consumer basket threshold (UAH 6,318), this rate rose to 90 per cent. By

COMMUNITY DECISION-MAKING

Veterans were more likely to report being engaged in the community decision-making processes, as 56 per cent of them reported participating in local governance or community initiatives, compared to 33 per cent among non-veterans. Increased engagement also coincided with higher reported tensions.

contrast, those earning below this threshold were less likely to feel apprehensive about newcomers (82%), possibly reflecting concerns over competition for limited jobs and resources. This dynamic suggests that in regions where employment is scarce, tensions between veterans and newly arrived populations may arise.31

32 IOM Ukraine, “The social Reintegration of Veterans in Ukraine”, November 2023.

The IOM’s Social Reintegration of Veterans in Ukraine assessment found that veterans place high trust in the armed forces, public veterans’ associations, and certain international institutions, while exhibiting lower levels of confidence in broader government structures and local authorities.32

METHODOLOGY

The data presented in this report was commissioned by the International Organization for Migration (IOM) and collected by Multicultural Insights as part of Rounds 17-19 of the General Population Survey (GPS). Data was gathered through phonebased screening interviews with an average of 40,000 randomly selected respondents per round, using the computer-assisted telephone interviewing (CATI) method and a random digit dial (RDD) approach. Across these screening interviews, 1,168 veterans in Round 17, 1,173 veterans in Round 18, and 1,227 veterans in Round 19 were identified. Following the screening stage, an average of 4,800 respondents per round participated in in-depth follow-up interviews (main survey), including 125 veterans in Round 17, 121 in Round 18, and 125 in Round 19. Consequently, results for different indicators were collected during various rounds, and the relevant footnotes specify which round applies to each set of indicators.

Additionally, a booster sample was included for veterans who had been screened but did not participate in the main survey, resulting in 238 veterans in Round 17, 200 in Round 18, and 196 in Round 19. All interviews were conducted anonymously, and respondents were asked for consent before starting the interview.

This report draws on a probabilistic sample that combines responses from the screener, the main survey, and a targeted booster sample of veterans. The comparative analysis of veterans and non-veterans primarily relies on the main survey dataset, while the combined dataset provides a more in-depth view of veterans’ specific vulnerabilities, needs, and characteristics. Any figures derived from the combined dataset are clearly highlighted with an accompanying footnote.

The survey included all oblasts in Ukraine, except for the Autonomous Republic of Crimea (ARC) and areas of Donetska, Luhanska, Khersonska, and Zaporizka Oblasts under the temporary military control of the Russian Federation, where phone coverage by Ukrainian operators was not available.

Limitations: Those currently residing outside the territory of Ukraine were not interviewed, following active exclusion. Population estimates assume that minors (those under 18 years old) are accompanied by their adult parents or guardians. The sample frame is limited to adults that use mobile phones, in areas where phone networks were fully functional for the entire period of the survey. People residing in the Autonomous Republic of Crimea (ARC) or the occupied areas of Donetska, Zaporizka, Luhanska, and Khersonska Oblasts were not included in the survey. Estimates in Donetska, Zaporizka, and Khersonska Oblasts are likely under-represented as a result of coverage being limited to governmentcontrolled areas and to the limited number of respondents reached in occupied areas.

Moreover, the disability status is based solely on respondents’ selfreporting, without verification through official documentation or medical records. Consequently, the extent of disabilities reported may diverge from administrative or clinical data.

Individuals were classified as “veterans” based on self-identification and reported involvement in official military tasks since April 2014. This approach diverges from both the Government of Ukraine’s legal definition and the IOM/UNHCR guidance for ex-combatants. It is intended to capture a wider range of former servicemen/women, irrespective of whether they have obtained official veteran status or documentation.

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