The war continues to present unprecedented challenges to the state. The legislator in particular has to find not just situational solutions but to adopt a fair, transparent, and effective veterans affairs policy. This is a crucial point for ensuring dignified support and reliable protection for combat veterans, participants in hostilities, and their families.
Throughout 2025, new laws were adopted, changes were made to the existing laws and bylaws, aimed at strengthening targeted assistance, adapting policies to martial law conditions, and improving accessibility of social services for combat veterans and their family members.
Perhaps the biggest problem this year was preparing a veterans affairs policy that would truly work for people during the ongoing war. After all, the number of veterans is growing, and each of them returns from war with a unique set of needs: from the treatment of complex physical and psychological traumas to the rebuilding of their lost professional skills and reintegration into society.
The most acute systemic challenges in the veterans affairs policy can be outlined as follows:
- haste and fragmentation: laws and Cabinet resolutions were often adopted at the last moment (for example, to ensure urgent payments). Many of these documents were situational solutions not supported by detailed financial calculations
- bureaucratic complexity: procedures defined in the adopted documents often make the process of obtaining the status of a participant in hostilities, applying for payments, and accessing social services a non-trivial task for veterans and their families
- personnel shortage: catastrophic lack of experts working with veterans, especially psychologists and rehabilitation specialists, and poor adaptation of healthcare and social welfare systems to address specific military-related injuries and conditions like PTSD, chronic pain, and musculoskeletal injuries
- exclusion of important vulnerable groups: policy decisions often failed to take into account the needs of families of veterans, women veterans, veterans with severe disabilities (impaired vision, for example), and LGBT service members, who largely remained outside the focus of major programs.
Below, we will review the key legislative innovations related to the veterans affairs policy, dividing them by topic and evaluating their impact on various social issues. We will analyze their content, implementation progress, and potential impact on the lives of combat veterans, participants in hostilities, and members of their families.
Finally, we will provide brief conclusions that will help identify shortcomings in this year’s implementation of the veterans affairs policy and serve as a foundation for further recommendations.
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Social security and monetary assistance
One-time cash assistance
Draft bill #4351-IX of April 15, 2025
Who is affected: families of fallen (deceased) Defenders of Ukraine
Summary
- families of service members who died or perished from wounds, concussions, or diseases received while participating in combat operations defending Ukraine from the Russian aggression will be eligible to obtain the status of families of fallen (deceased) Defenders of Ukraine
- to obtain the status of a family member of a fallen Defender of Ukraine, a certificate from the commander of a military unit of the Armed Forces, police, National Guard, State Border Service, Security Service of Ukraine, or other body of the Defense Forces of Ukraine is required, confirming that the deceased directly participated in combat operations
- the state pays families of fallen defenders one-time monetary assistance of 15 million hryvnias if their relative died while participating in combat operations conducted from February 24, 2022, until the end of the war in territories of active hostilities (the list is defined by the Commander-in-Chief of the Armed Forces). If a family is entitled to several such payments under different laws, it receives only one such payment of the family’s choice. The payment procedure is defined by the Cabinet of Ministers.
What happened
these changes are important because they clearly define how families of fallen defenders can confirm their status, receive payments and social security benefits. The bill removed some of the bureaucratic obstacles and ensured fair recognition of their relatives’ heroism.
Expansion of the list of persons with special merits before the Motherland
Draft bill #4513-ІХ of June 19, 2025
Who is affected: participants of the Revolution of Dignity and members of their families
Summary
- persons awarded the Order of Heroes of the Heavenly Hundred are included in the list of persons with special merits before the Motherland.
What happened
the contribution of Maidan heroes to building independent Ukraine and defending democratic values has been officially and clearly defined. This will give their families appropriate benefits and social security benefits. Essentially, this is an expansion of the list of people entitled to benefits as veterans, including heroes of the Revolution of Dignity.
Housing rental cash compensation for participants in hostilities
Cabinet resolution #252 of March 7, 2025
Who is affected: participants in hostilities, combat veterans, and the Ministry of Veterans Affairs
Summary
- who can receive compensation:
- persons who participated in combat operations but were discharged before receiving the status of a participant in hostilities or the status of a veteran with a disability caused by war
- combat veterans, participants in hostilities, and persons with a disability caused by war who have been discharged
- police officers and rescuers who participated in combat operations and were discharged but do not yet have the status of a participant in hostilities or the status of a veteran with a disability caused by war
- cases when payment is made:
- housing was destroyed or damaged as a result of military actions (the respective data is present in the register or confirmed by local authorities)
- housing is located in a combat zone or occupied territory
- person is receiving treatment far from home (more than 15 km)
- how much is paid (monthly for up to 6 months):
- Kyiv, Dnipro, Lviv, Odesa — 2 subsistence minimums (about 6,200 UAH)
- other oblast centers — 1.5 subsistence minimums (about 4,650 UAH)
- other cities — 1 subsistence minimum (about 3,100 UAH)
- an application for compensation with an attached copy of a housing rental agreement is submitted to the local state administration or executive body of the community at the place of registered or actual residence directly or via the administrative services centers. Compensation is paid for the duration of the contract, but not more than six months.
What happened
this compensation is needed to provide defenders of Ukraine who have returned and do not have housing due to its destruction, damage, or occupation, or are undergoing rehabilitation far from home with financial support for renting accommodation during the critical transition period after demobilization — a time when they have not yet managed to obtain the official status of a participant in hostilities, find employment, recover psychologically and physically, find permanent housing. Without such help, they could find themselves in a difficult situation or even homeless.
State assistance for education of veterans’ children
Cabinet resolution #318 of March 14, 2025
Who is affected: children of combat veterans, children of participants in hostilities, children of fallen (deceased) Defenders, the Ministry of Veterans Affairs, the Ministry of Digital Transformation, and the Ministry of Education
Summary
- state assistance for education is provided to children (up to 23 years old) of:
- fallen (deceased) Defenders of Ukraine
- persons with disabilities caused by war
- participants in hostilities
- persons missing under special circumstances
- persons deprived of freedom as a result of armed aggression against Ukraine
- participants of the Revolution of Dignity who sustained injuries
- participation in the project is voluntary for both applicants and educational establishments
- assistance is provided by priority (in the order indicated above)
- the project covers the full cost of education
- does not apply to students whose education is already fully covered by the state
- assistance amount is 100% of the cost of education set by the educational institution for paid educational services
- the project continues until September 15, 2026.
What happened
the resolution provides social protection for the most vulnerable categories of citizens who suffered due to the war. Children of those who defended Ukraine often find themselves in difficult life circumstances (loss of a breadwinner, disability of a parent or parents).
One-time monetary assistance for families of fallen service members
Cabinet resolution #936 of July 30, 2025
Who is affected: families of participants in hostilities and the Ministry of Veterans Affairs
Summary
- family members of persons who died since February 24, 2022, while defending Ukraine in a combat zone will receive one-time cash compensation in the amount of 15 million UAH per family
- compensation is paid in stages:
- first 3 million UAH (1/5 of the amount)
- the remaining 12 million UAH is paid monthly in equal parts over 40 months
- money is divided equally among family members. If someone refuses their share, it is divided among other family members. It is forbidden to refuse payment on behalf of children or legally incapable persons
- to receive payment, a person has to submit an application to the Ministry of Veterans Affairs (online, by mail, or in person)
- if the family has a right to several types of assistance, only one can be chosen.
What happened
the legislator has defined the procedure and the timeline for providing one-time cash assistance to families of fallen service members.
Compensation for compulsory car insurance expenses
Cabinet resolution #1091 of August 22, 2025
Who is affected: combat veterans, participants in hostilities, and the Ministry of Veterans Affairs
Summary
- participants in hostilities can receive compensation for compulsory car insurance expenses (mandatory driver liability insurance)
- allocation and payment of such compensation is carried out by the Ministry of Veterans Affairs in the full amount of the insurance premium actually paid by the policyholder under an insurance contract concluded from January 1, 2025, to December 31 of the year following the termination or cancellation of martial law in Ukraine
- vehicle requirements:
- owned by a policyholder entitled to compensation
- has an internal combustion engine volume of no more than 2500 cm³ or electric motor power of no more than 100 kW
- not used for business activities or providing passenger or cargo transportation services
- compensation applications have to be submitted by veterans via the Diia portal.
What happened
the state compensates participants in hostilities for the cost of mandatory car insurance for their personal vehicles.
Medical, psychological, and rehabilitation support
Experimental project on providing expanded primary healthcare services to veterans
Cabinet resolution #140 of February 4, 2025
Who is affected: participants in hostilities, persons with disabilities caused by war, the Ministry of Health, the Ministry of Veterans Affairs, the National Health Service, and hospitals
Summary
- medical facilities and physicians already working under the program of medical guarantees can additionally sign a contract for special services for veterans. They receive payment based on the online reports on services they have provided
- how it works:
- contracts are signed via the system of the National Health Service before December 1, 2025
- money is paid based on the reports on provided services, which are registered in the electronic healthcare system
- services are provided free of charge to participants in hostilities and persons with disabilities caused by war
- to receive service, a person needs to come to a doctor (or send a representative) with the following documents:
- passport;
- taxpayer identification number (or passport number if a person refused to get a tax ID)
- certificate of a participant in hostilities or a person with a disability caused by war
- money is paid only to a physician who has signed a declaration with a veteran to be their family doctor and actually provided the service
- doctor creates a personal monitoring plan taking into account health, chronic diseases, and potential health risks of the veteran
- expanded screening for post-war problems:
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- post-traumatic stress disorder (PTSD)
- hypertension
- chronic pain
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- psychological assistance:
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- individual and group sessions
- cognitive behavioral therapy
- programs to combat stress, anxiety, and depression
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- consultations with other specialists (orthopedists, neurologists, etc.)
- assistance in recovery after injuries
- treatment of the musculoskeletal system: arthritis, arthrosis, joint problems
- expanded screening for post-war problems:
- the experimental project is implemented in 2025.
What happened
the list of medical services provided to veterans free of charge is expanding and now covers issues from psychological support and PTSD screening to chronic pain treatment and rehabilitation, without queues or referrals. Family doctors receive additional funding, and the healthcare system receives early diagnosis of veterans’ problems and hospital relief.
Psychological assistance for veterans
Cabinet resolution #932 of July 30, 2025
Who is affected: combat veterans, participants in hostilities, members of their families, the Ministry of Veterans Affairs, and veteran support specialists
Summary
- psychological assistance covers the following types of services:
- crisis psychological intervention: psychological assistance to a person in crisis
- psychological diagnostics: evaluation of the current psychological state and individual characteristics of a person
- psychoeducation: psychological education and information
- psychological counseling
- psychotherapy
- group work: conducting psychological training, psychoeducation, providing psychological assistance in groups
- the list of recommended evidence-based methods is extended with cognitive behavioral therapy, EMDR, body-oriented therapy, etc.
- veteran support specialists are officially added to the list of people allowed to provide assistance.
What happened
modernization of the psychological assistance system with emphasis on accessibility of services.
Experimental project on providing adaptation services
Cabinet resolution #1060 of August 22, 2025
Who is affected: combat veterans, participants in hostilities, members of their families, the Ministry of Veterans Affairs, and veteran adaptation specialists
Summary
- 3 ways of providing adaptation services to Defenders of Ukraine with complete or partial loss of vision are established:
- one-on-one work
- work with family
- group work (with a maximum of participants of up to 10 people)
- services are available at all stages: from the first problems with vision to full return to active life in society
- adaptation stages are defined as follows:
- stage 1, veterans are helped to:
- master self-care skills, taking into account the problems with vision
- learn about rehabilitation devices and how to use them
- receive information about all available services and types of assistance
- stage 2, veterans learn to:
- orient in space and move on their own
- perform basic household tasks
- use Braille and tactile images
- use special devices for communicating and receiving information
- veterans and their relatives receive psychological assistance
- veterans learn about opportunities for recreation and adapted sports
- stage 3, veterans are provided with:
- additional training and support to practice orientation skills in their homes
- assistance in arranging space and moving along main routes outside their homes
- support in social services, employment, and leisure
- stage 1, veterans are helped to:
- services are paid for from the government budget and the budgets of territorial communities
- to use first or second level adaptation services, a person can apply orally, in writing, or electronically to an adaptation services specialist or to a medical facility providing such services
- the project continues until December 31, 2026.
What happened
the experimental project aims to help people whose vision was impaired because of the war to return to a full life.
Sports and physical rehabilitation
Sports for veterans
Draft bill #4476-IX of June 4, 2025
Who is affected: combat veterans, participants in hostilities, the Ministry of Veterans Affairs, and the Ministry of Social Policy
Summary
- the Ministry of Social Policy:
- promotes sports in social security institutions, rehabilitation centers, and children’s camps
- helps develop physical education for children
- the Ministry of Veterans Affairs:
- promotes sports for veterans in cooperation with sports facilities, local authorities, and civic organizations
- organizes national and international competitions for veterans, creates national teams
- submits proposals to the Unified Calendar Plan of Sports Events of Ukraine
- makes sports accessible for veterans and their families
- helps train coaches to work with veterans
- studies international experience in restoring veterans’ health through sports
- promotes sports among veterans
- cooperates with authorities, veterans’ civic organizations, and sports federations to promote sports for veterans
- promotes sports for veterans and participates in sports events and competitions for veterans and their families.
What happened
the law permits the involvement of various organizations in working with veterans, engaging sports clubs, federations, and civic associations. The Ministry of Veterans Affairs cannot reach all veterans throughout Ukraine on its own, so cooperation with other organizations is needed. This way, veterans throughout Ukraine will have access to sports activities that help restore health after war, return to active life, and find support among like-minded people. In addition, members of their families can join the activities, which will promote the restoration of stable family ties.
Assistance to veterans for sports
Cabinet resolution #2 of January 3, 2025
Who is affected: participants in hostilities, persons with disabilities caused by war, the Ministry of Veterans Affairs, and the Ministry of Digital Transformation
Summary
- combat veterans and persons with disabilities caused by war will be able to receive state assistance of 1,500 hryvnias per quarter for physical education and sports activities
- requirements for receiving such assistance:
- 18 years of age
- a valid taxpayer identification number
- the status of a participant in hostilities or the status of a person with a disability caused by war
- application for assistance is submitted via the Diia portal, information about the status of a participant in hostilities or the status of a person with a disability caused by war is confirmed via the electronic Unified State Register of War Veterans
- funds can be used during the current quarter exclusively for physical education or sports services
- the project is experimental and will continue for 2 years.
What happened
conditions are created for restoring the health and psychological state of combat veterans and people with disabilities caused by war, by promoting their inclusion in society through sports.
Support and social integration
Comprehensive approach to internal veterans affairs policy
Draft bill #4285-IX of March 11, 2025
Who is affected: combat veterans, participants in hostilities
Summary
Defines the basic principles of internal veterans affairs policy:
- recognition and respect:
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- recognizing of veterans’ contribution to preserving Ukraine
- using veterans’ experience for the development of the country
- fighting stereotypes about veterans
- honoring the memory of the fallen
- health support:
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- providing accessible medical care and rehabilitation to veterans and their families
- treatment of PTSD and addiction, suicide prevention
- psychological assistance
- return to civilian life:
-
- creating an adaptation system after service
- assisting in integration into community life
- training in new professions
- economic support:
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- assisting in job search and starting own businesses
- assisting in obtaining education
- promoting financial independence
- social activity:
-
- involvement in public life
- supporting sports for veterans
- assisting in implementing creative ideas
- education and memory:
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- engagement of veterans in youth education
- establishment of museums and monuments
- facilitation of a culture of gratitude in society
- registration system:
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- establishment of a unified database of veterans for effective assistance
- funding:
-
- allocation of funding for all programs for veterans.
What happened
hundreds of thousands of veterans are returning from war with injuries and need help returning to normal life. Without help, they risk being left alone with PTSD, unemployment, and social problems. In addition, this is a matter of justice and society’s gratitude to those people who stood up to defend the state at the most difficult moment in its modern history.
Veteran support specialists
Cabinet resolution #67 of January 24, 2025
Who is affected: participants in hostilities, persons with disabilities caused by war, and veteran support specialists
Summary
- the subvention to local budgets to pay for the work of veteran support specialists is extended until the end of 2025
- new requirements were added for receiving funds for the support program:
- specialists must have the training required by professional standards
- there has to be a position of support specialist in staff: 1 specialist per a maximum of 100 veterans and their relatives (confirmed by the Unified Register of War Veterans)
- rules for the distribution of funds among local budgets were clarified
- the following institutions are permitted to train veteran support specialists:
- universities, qualification centers (accreditation no longer required), and veteran development centers
- special educational programs for veteran support specialists
- knowledge verification is now conducted only by qualification centers accredited by the National Qualifications Agency.
What happened
the veteran support program was extended until the end of 2025, requirements for training veteran support specialists were simplified, the maximum number of veterans per one specialist was defined.
Interdepartmental cooperation to ensure support for veterans
Cabinet resolution #1025 of August 22, 2025
Who is affected: combat veterans, participants in hostilities, members of their families, the Ministry of Veterans Affairs, and veteran support specialists
Summary
- the list of people who can get help from veteran support specialists was extended and now includes:
- war veterans
- service members under treatment after participating in combat operations
- family members of fallen or deceased Defenders
- family members of persons missing in action
- former prisoners of war
- participants of the Revolution of Dignity who sustained injuries
- persons with special merits before the Motherland
- other demobilized persons
- support specialists can coordinate with:
- territorial offices of the Pension Fund
- regional employment centers and their branches
- the National Social Service and its territorial offices
- social service providers.
What happened
defines the categories of persons entitled to services of veteran support specialists and institutions with which these specialists can coordinate for the benefit of veterans.
Professional adaptation and entrepreneurship
Veteran entrepreneurship
Draft bill #4563-IX of July 31, 2025
Who is affected: combat veterans and participants in hostilities
Summary
- the bill establishes legal definitions of “veteran business” and “veteran social entrepreneurship”
- the bill regulates ways the state supports such businesses and defines what goals state policy aims to achieve
- the procedure on how an entrepreneur can obtain “veteran business” status and under what conditions it can be lost is defined
- a register of such enterprises will be launched under the Unified Register of War Veterans
- types of state assistance and opportunities for international cooperation for veteran businesses are defined.
What happened
the law creates a system of benefits, financial support, and simplified procedures for involving veterans in launching their own businesses. This is one of the ways to help veterans adapt to civilian life and involve them in economic activity.
Changes in professional adaptation of veterans
Cabinet resolution #126 of February 7, 2025
Who is affected: combat veterans, participants in hostilities, and driving schools
Summary
- professional adaptation programs for veterans and family members of fallen (deceased) Defenders will be extended to cover driving school and driving license fees. The programs can pay for training, retraining, and advanced training.
What happened
veterans will be able to undergo driver training at state expense.
Digitalization of services
Veteran Pro
Cabinet resolution #779 of July 2, 2025
Who is affected: combat veterans, participants in hostilities, and members of their families, the Ministry of Veterans Affairs, and the Ministry of Digital Transformation
Summary
- a mechanism for automation and digitalization of services for veterans and members of their families is established via the Diia portal
- how it works:
- the Diia app has a Veteran Pro section
- veterans and their family members have access to this section (users have to be Ukrainian citizens of 18+ years of age, have tax IDs and veterans’ electronic certificates)
- the system is connected to the Unified State Register of War Veterans
- what is required:
- to install Diia on a smartphone with internet access
- pass electronic identification
- have an electronic veteran’s certificate.
What happened
the process of obtaining electronic services for veterans is simplified since less paperwork is required.
Combat experience and national resistance
Veterans’ involvement in training under the national resistance curriculum
Draft bill #4331-IX of March 26, 2025
Who is affected: participants in hostilities, the Ministry of Veterans Affairs, and educational institutions
Summary
- combat veterans will be involved in preparing the population for national resistance
- the Ministry of Veterans Affairs is added to the list of organizations responsible for basic military training of citizens.
What happened
- veterans have valuable combat experience that can be used to train civilians on how to act during armed conflicts. Their knowledge and skills can help citizens better prepare for possible threats
- the involvement of veterans in public life promotes their social adaptation and reintegration into civilian life
- adding the Ministry of Veterans Affairs to the list of subjects responsible for initial military training promotes coordination of efforts of various state authorities working in this field.
Modernization of military lyceums
Cabinet resolution #899 of July 16, 2025
Who is affected: Ministry of Education, Ministry of Defense, Ministry of Internal Affairs, Ministry of Social Policy, State Border Service Administration, Ministry for Communities and Territories Development, Recovery Agency, enterprises, institutions and organizations managed by the Recovery Agency, oblast state administrations and Kyiv city state administration (military administrations), local self-government bodies, and military (naval, military sports) lyceums, lyceums with enhanced military and physical training
Summary
- military lyceums will be modernized:
- education: curricula will be updated in accordance with the New Ukrainian School requirements
- construction: new construction, reconstruction, and major repairs of the lyceums’ premises are planned
- personnel: the Cabinet plans to draft and approve new staffing standards for lyceums, ensuring the possibility of including war veterans in staff and introducing new approaches to remuneration of lyceum employees
- digital transformation: a digital educational environment will be created, ensuring equal access to educational resources, automated management processes, strengthened cybersecurity and protection of personal data, improved interaction between participants in the educational process. Websites of the lyceums will be created.
- to modernize military lyceums, the Cabinet of Ministers will establish an interdepartmental commission, which will include representatives of the Ministry of Veterans Affairs, Ministry for Communities and Territories Development, Ministry of Education, Ministry of Defense, Recovery Agency and other interested bodies. Its regulations and personal composition will be approved by the Cabinet.
What happened
military lyceums operate according to old standards that do not meet modern challenges and army’s needs. The experimental format allows trying new teaching methods and testing their effectiveness before implementing them on a larger scale.
Conclusions
2025 became a period of significant changes in the veterans affairs policy. The state made a significant breakthrough, moving from ad-hoc solutions to laying the foundations of a comprehensive support system.
Key achievements of the state in building veterans affairs policy are the following:
- systematization of social payments: unification of the procedure for payments to families of the fallen (draft bill 4351-IX, Cabinet resolution #936), a clear mechanism for confirming their status and receiving compensation was established
- institutional strengthening of veteran support: the program for veteran support specialists was extended and optimized (Cabinet resolutions #67, #1025), the list of persons entitled to assistance was expanded, and the process of interdepartmental interactions was clarified
- development of medical and psychological support: an experimental project to expand primary medical care for veterans was launched (Cabinet resolution #140) and approaches to psychological assistance were updated (Cabinet resolution #932) with emphasis on evidence-based methods
- support for specific needs: in particular, a unique experimental project for adaptation of veterans with impaired vision was launched (Cabinet resolution #1060), demonstrating progress in inclusiveness
- economic and social adaptation: a legal framework for veteran entrepreneurship was established (draft bill #4563-IX) and financial assistance for sports activities was introduced (Cabinet resolution #2) as a tool for physical and social rehabilitation
- digitalization of services: the Veteran Pro project (Cabinet resolution #779) is a critically important step toward reducing paperwork and simplifying access to public services for veterans.
Throughout the year, the state tried to address priority needs: housing, access to primary medical care, psychological rehabilitation, and economic adaptation of veterans in the labor market.
However, the development of a state policy on veterans affairs is inextricably linked with the limited financial capacity of the state to fund the required expenditures. This is why policy decisions remain situational, fragmented, and often are adopted after certain events that had public resonance.
However, despite the significant volume of adopted decisions and active development of veterans affairs policy in 2025, we see that many important issues are still ignored, and the development of a systemic, comprehensive policy is still in progress.
The key challenges for veterans affairs policy, in our opinion, are:
- systemic policy for working with families of retired veterans remained out of the picture. The focus is mainly on families of the fallen, while spouses, children, and parents of veterans face burnout, lack of social services, employment problems, and lack of support. No comprehensive solutions were proposed in this regard
- issues of status, access to payments before receiving a certificate, queues for receiving the status of a participant in hostilities, and digital solutions remain ineffective for now
- quality control of services and monitoring of their effectiveness. Most regulations establish new programs but do not define quality criteria, effectiveness indicators, clear monitoring mechanisms, and accountability of the executors
- veterans affairs policy lacks inclusivity, particularly regarding female veterans, LGBT service members, and veterans with disabilities. Without special regulations and programs, they remain unprotected when it comes to issues in healthcare, rehabilitation, and employment.
Thus, current policy, despite progress, is still fragmented, incomplete, and does not take into account the needs of critically important groups and processes.
Recommendations
To develop a comprehensive veterans affairs policy in 2026 that would truly meet the needs of veterans and their families, it is necessary to:
develop a policy to support families of veterans:
- ensure psychological support
- establish employment programs for family members
- expand rehabilitation services for children
- develop programs for preventing burnout and secondary traumatization for veterans
- develop demobilization and transition period policies
strengthen gender and inclusive policies:
- adopt protocols for medical and psychological assistance for women veterans
- improve services for veterans with disabilities and LGBT service members.
- However, all these recommendations should correlate with the real financial capabilities of the state, so that the policy is not only strategically correct but also implementable.