Ali Zuweid's Political Programme · Legislative Proposal · Security, Defence and Sovereignty
Reserve Forces, Veterans, Rehabilitation and Reintegration Bill
A legal system linking reserves to actual readiness, protecting the civilian employment of those called up, and turning the end of military service from an administrative break into an organized transition towards health, work, education and civilian life, with a controlled reintegration pathway granting neither immunity nor rewards for bearing arms outside the State.
Executive Summary
Iraq has legislation in force governing military service and retirement, martyrs' and wounded personnel's rights and compensation. Within the Ministry of Defence there is also a Directorate-General for Veterans' Affairs currently providing services connected with personnel of the former army. Other pathways exist through the Military Retirement Department, Personal Services Directorate, Wounded Personnel Rehabilitation and Care Directorate, Martyrs Foundation and Commission for the Care of Persons with Disabilities. Recent electronic government services confirm that this system already exists but is distributed among multiple bodies, without a unified framework connecting reserves, civilian job protection, service transition and veterans' case management in a single cycle.
The proposal addresses this gap without creating a new independent authority. It reorganizes the Directorate-General for Veterans' Affairs as a central service and coordination point , not a substitute for pension, health or Martyrs Foundation authorities, and builds a secure register connecting reserves, veterans and services. For reserves, it defines readiness categories, training and call-up, establishes explicit protection of civilian employment, seniority and social insurance during call-up, and sets limits on periodic training and deferment mechanisms for critical civilian occupations.
For veterans, the proposal makes transition a process beginning before discharge: health examinations, injury documentation, conversion of military skills into civilian qualifications, career guidance, labour-market-linked training, case management for wounded personnel and a single service portal. It creates no automatic salary, land entitlement or job merely from veteran status, distinguishing status and service from financial entitlements that remain governed by their respective laws, protecting fairness and fiscal sustainability.
The proposal also establishes a separate chapter for any future disarmament, demobilization and reintegration programme for persons coming from irregular formations. They do not automatically acquire veteran status, rank or pensions. Disarmament and legal verification are required, with no immunity or prejudice to victims' rights, alongside temporary civilian support aimed at preventing a return to violence.
I — Constitutional and Legal Context
Article (9) of the Iraqi Constitution subjects the armed forces to civilian leadership, prohibits militias outside the armed forces and requires national military service to be regulated by law. Articles (30) and (31) guarantee social and health security and care in cases of illness, disability and unemployment. These principles permit a disciplined legal reserve system and a framework for post-service care and transition, provided they create neither a parallel force nor privileges lacking objective criteria.
Military Service and Retirement Law No. (3) of 2010, as amended, regulates military personnel, pension rights, injuries and martyrs. Its First Amendment Law No. (41) of 2013 was published. On 8 September 2026, the parliamentary Security and Defence Committee announced completion of its review and internal vote on the proposed second amendment before inclusion on the Council of Representatives' agenda. The proposal therefore does not rewrite the pay and pension system; it complements it and requires automatic review when a new amendment is enacted.
Institutionally, the Ministry of Defence currently has the Directorate-General for Veterans' Affairs and an official Ur portal service for following pension applications of former army personnel. Current government services also show distinct roles for the Personal Services Directorate in wounded personnel's cases, the Military Retirement Department and National Pension Authority, the Martyrs Foundation and disability-care commission. The most appropriate reform is therefore integration and case management , not creation of a new ministry or independent authority.
II — Legislative Gap and Proposed Policy
| Gap | Proposed remedy |
|---|---|
| Reserves are recognized as a defence need, but details of registration, training, call-up and civil rights are scattered or incomplete. | An integrated legal system with readiness categories, a register, training, call-up, compensation and protection of employment and civilian pensions. |
| Leaving military service may begin with delayed pension and healthcare procedures after discharge. | A transition programme beginning before service ends and producing a health, professional and administrative record usable in civilian life. |
| Multiple bodies handle wounded personnel, retirees and former service members. | A single service portal, case manager and shared register, while pension, medical and financial decisions remain with the competent body. |
| Vocational training unrelated to demand may become a nominal activity. | Link training to labour-market data, recognize military skills and measure actual return to work or education. |
| Potential confusion between veterans and former fighters outside State institutions. | Strict legal separation: veteran status for recognized military service; any disarmament and reintegration through a special programme without automatic rank or pension. |
| Risk of duplicate compensation and programmes. | Verification, offsetting and transparency rules, applying the more beneficial entitlement where legally permitted and preventing payment of the same financial component twice. |
III — Text of the Bill
In the name of the people
Presidency of the Republic
On the basis of approval by the Council of Representatives pursuant to paragraph (First) of Article (61) and paragraph (Third) of Article (73) of the Constitution of the Republic of Iraq, the following Law is issued:
Reserve Forces, Veterans, Rehabilitation and Reintegration Law
Chapter One — General Provisions
Article (1) — Title and scope
This Law shall be called the “Reserve Forces, Veterans, Rehabilitation and Reintegration Law”. It shall govern the reserve system of the Iraqi armed forces; transition, care, rehabilitation and reintegration services for covered veterans; and special reintegration programmes established under it.
Article (2) — Objectives
The Law aims to establish an organized, mobilizable reserve without permanent expansion of active forces; protect the civil and employment rights of those called up; ensure organized transition from military service to civilian life; unify services for veterans, wounded personnel and their families; reduce institutional duplication; link rehabilitation to education, employment, health and family stability; and prevent the return of weapons outside State institutions.
Article (3) — Definitions
For the purposes of this Law, the following terms shall have the meanings assigned to them: Ministry: the Ministry of Defence. Minister: the Minister of Defence. Armed Forces: the federal Iraqi armed forces under the Constitution and law. Reserve: persons lawfully registered and available for temporary military call-up under this Law. Ready Reserve: the highest-readiness category, closest in time to active service. Specialist Reserve: holders of medical, engineering, technical, communications, logistical and other critical skills. General Reserve: persons whose data and qualifications the State retains for mobilization under the rules. Called-Up Reservist: a reservist subject to a lawful call-up order. Veteran: a person whose active armed forces service has lawfully ended after documented military service, including service ending through service-related injury or disability; this status alone creates no pension or financial rights not prescribed by another law. Service Injury: injury, illness or disability whose connection to service is established by medical committees and applicable laws. Service Transition: the period and procedures beginning before service ends and continuing afterwards to prepare the individual for civilian life. Rehabilitation: medical, psychological, functional and vocational services necessary to restore independence and capacity for work and participation. Reintegration: the social, economic and civilian pathway returning a person to stable, lawful civilian life. Register: the secure national register for reserves and veterans established by this Law.
Article (4) — Governing principles
This Law rests on: reserve subordination to civilian leadership and the law; voluntary active service under current legislation unless a separate national service law is enacted; non-discrimination; priority for readiness, skill and need; protection of civilian employment, income and civil rights during call-up; prevention of veteran status becoming a political privilege or partisan instrument; support targeted by need, injury and service impact; protection of public funds; and no duplicate entitlements for the same harm.
Article (5) — Relationship with the Armed Forces Law
This Law's reserve system provides legislative and implementing detail for the general reserve provisions of the Iraqi Armed Forces Law. It shall apply consistently with that Law and its rules on command, discipline and readiness.
Article (6) — Relationship with the Military Service and Retirement Law
Salaries, allowances, pensions, end-of-service benefits, martyrs' and wounded personnel's rights and disability entitlements shall remain governed by Military Service and Retirement Law No. (3) of 2010, as amended, or its replacement, unless this Law contains a special provision on reserve service, transition or rehabilitation. This Law shall not be interpreted to reduce an acquired pension right.
Article (7) — Relationship with Martyrs, Compensation and Disability Laws
This Law shall not affect powers and rights under the Martyrs Foundation Law, the law compensating those affected by war operations, military errors and terrorist operations, the Law on Care for Persons with Disabilities and Special Needs, or other special legislation. Bodies shall exchange data and verify records to prevent duplication and delay.
Article (8) — Veteran Status
Veteran status shall be established by an administrative decision based on an official service record, final judicial judgment or alternative official documents specified by instructions where records were lost for reasons beyond the person's control. The decision shall be reasoned and open to grievance and appeal.
Article (9) — Effect of Status
Veteran status shall not automatically confer a pension, land, compensation, public employment or honorary promotion. Each entitlement shall be governed by its law and conditions. Status shall permit access to transition, guidance, registration and other services established by this Law.
Article (10) — Ineligibility and Restrictions
This Law shall not be used to nullify the effects of a final criminal judgment or erase responsibility for terrorism, war crimes, crimes against humanity, torture, enforced disappearance or other serious offences. Loss of a financial benefit through judgment or lawful procedure shall not deprive an injured person of emergency treatment or inalienable human rights.
Article (11) — Equality and Non-Discrimination
Services and entitlements shall be provided under published criteria concerning service, injury, need and capacity to benefit, without discrimination based on ethnicity, religion, sect, sex, locality, political opinion or social affiliation, respecting constitutional arrangements for regional and governorate powers.
Article (12) — Institutional Focal Point
The Ministry of Defence's Directorate-General for Veterans' Affairs, reorganized under this Law, shall be the Ministry's focal point for veterans' and transition services. It shall coordinate with the Military Retirement Department, Directorate-General of Personnel, Personal Services Directorate, Wounded Personnel Rehabilitation and Care Directorate and other federal bodies, without establishing a new independent authority.
Article (13) — Secure National Register
The Ministry shall establish a secure integrated national register for reserves and veterans linking national identity numbers with service, specialization, readiness, contact details, medical information necessary for call-up and administrative entitlements. Its design shall prevent duplication and permit audit of decisions, dates and decision-makers.
Article (14) — Data Protection
Only the minimum data necessary to implement the Law shall be collected. Access shall be role-based. Health, operational history and detailed residential data shall not be shared beyond lawful purposes. Reserve personnel lists, injury data or information revealing military capability or location shall not be published.
Chapter Two — Establishment and Classification of Reserves
Article (15) — Establishing the Reserve System
An armed forces reserve system shall comprise defined readiness and specialization categories, providing personnel available for training, mobilization or temporary capability shortfalls without replacing the active establishment or concealing its expansion.
Article (16) — Reserve Categories
Reserves shall comprise: a ready reserve of recently discharged service members retaining appropriate proficiency; a specialist reserve of holders of critical skills; and a general reserve for broad mobilization. Subcategories may be created by Council of Ministers regulation on the Minister's proposal according to defence-plan requirements.
Article (17) — Sources of Reserve Personnel
Reserves shall include persons completing active service who meet fitness and professional-record requirements, volunteers joining under the rules, and persons covered by any future national service or mobilization law. No person shall enter the reserve register merely because of previous membership of an unlawful formation.
Article (18) — Conditional Automatic Transition from Service
Before service ends, the Ministry shall present the proposed reserve status to the service member, explaining category, commitment period, training duties and civil rights. Final registration shall require verified fitness, absence of legal impediments and notification of the decision.
Article (19) — Duration and Age
Reserve regulations shall specify commitment periods and maximum ages for each category by rank, specialty and duty type. These shall be defined and reviewable, and reserve service shall not become indefinite. Retention of scarce specialists may be extended with their consent within a regulatory ceiling.
Article (20) — Assignment to Categories
Classification shall reflect recency of training, experience, health, specialization, mobilization needs, disciplinary record and residence to facilitate rapid call-up without revealing force deployment. Previous rank alone shall not determine priority.
Article (21) — Duty to Update Information
Reservists shall update contact details, residence, material health information and civilian specialization within regulatory periods. The Ministry shall provide a secure digital update channel. Delay caused by government system failure or force majeure shall not be penalized.
Article (22) — Medical Examination
Reservists shall undergo medical examination on registration and, where necessary, before operational call-up. Fitness criteria shall distinguish unfitness for combat from ability to perform specialist or support duties. Unfitness or reclassification decisions shall be open to medical review.
Article (23) — Skills Classification
The Ministry shall establish a unified taxonomy of relevant military and civilian skills, including medicine, engineering, aviation, maintenance, communications, cybersecurity, languages, logistics and disaster management, updated as risks and technology evolve.
Article (24) — Training Plan
The Army General Staff shall prepare an annual reserve training plan specifying categories, numbers, objectives, duration, locations and resources. Training shall be linked to a specific task and required readiness level. Personnel shall not be called up merely to meet nominal headcounts.
Article (25) — Periodic Training Limit
Mandatory periodic training shall not exceed thirty days per person annually except with consent or under a mobilization or emergency decision under this Law. The period may be divided among several courses according to specialization.
Article (26) — Training Notice
Reservists and their employers, where an employment relationship exists, shall receive sufficient advance notice of periodic training as specified by regulation, normally no less than thirty days. Notice may be shortened for reasoned military necessity, preserving employment rights.
Article (27) — Training Allowance and Expenses
During training, reservists shall receive a financial allowance and transport and subsistence expenses under a regulation issued in coordination with the Ministry of Finance. The allowance shall prevent unjustified income loss without making short training more profitable than equivalent active service.
Article (28) — Protection of Civilian Employment
Absence from employment due to lawful reserve call-up shall constitute protected national service leave. Employment shall not be terminated, basic pay, grade or seniority reduced, or promotion denied because of call-up. Protection shall not cover professional misconduct independent of reserve service.
Article (29) — Return to Work
After service, the employer shall reinstate the called-up person in their original job or one equivalent in pay, status and rights, considering the normal progression they would have achieved without call-up. The person shall notify the employer of return within periods specified by instructions according to call-up duration and health.
Article (30) — Social Insurance and Civilian Pensions
Call-up shall count as service for seniority, social security and civilian pension or workers' social insurance purposes, as applicable. The Treasury shall cover deductions or contributions specified by regulation for periods unpaid by the employer owing to call-up, preventing an insurance gap caused by national duty.
Article (31) — Prohibition of Reserve-Related Discrimination
Public or private employers shall not refuse recruitment, dismiss, downgrade or reduce promotion or benefits because a person is a reservist or may be called up. A contrary action shall be void and entail compensation and restoration under the law.
Article (32) — Business Owners and Self-Employed Persons
The Ministry of Labour and Social Affairs, in coordination with the Ministry, shall establish a mechanism compensating part of proven direct harm to small business owners and self-employed persons during extended operational call-up, under published annual limits and criteria preventing double compensation.
Article (33) — Deferment and Temporary Exemption
Call-up may be deferred or temporarily waived where a person holds a civilian role critical to electricity, water, communications, healthcare, transport, cybersecurity or other essential services; is the sole provider for a wholly dependent person; or has a serious health or educational circumstance. Decisions shall follow uniform criteria and be open to grievance.
Article (34) — Termination of Reserve Registration
Reserve registration shall end on reaching the prescribed age or term, permanent unfitness, death, a final judgment barring service, loss of nationality under the law or another prescribed ground. The person shall be notified and entitlements for prior active service settled.
Chapter Three — Call-Up, Mobilization and Reserve Service
Article (35) — Types of Call-Up
Call-up shall serve one of the following purposes: periodic training; an exercise or readiness test; filling a temporary specialist gap; protection of a facility or borders or a specified defence mission; partial mobilization; or general mobilization during war or emergency under the Constitution.
Article (36) — Call-Up Authority
The Minister or an authorized delegate shall issue training and testing orders under the annual plan. Broad operational call-up or partial mobilization shall require a Commander-in-Chief decision on the recommendation of the Minister and Army Chief of Staff. Mobilization connected with war or emergency shall follow the relevant constitutional procedures.
Article (37) — Contents of a Call-Up Order
A call-up order shall specify purpose, required categories or specialties, general area, start date, expected duration or termination criterion, reporting location, body responsible for pay and care, and procedures for deferment requests or objections.
Article (38) — Notification
Notification shall use at least two reliable methods wherever possible, one through the digital register or registered telephone. Paper notification may be used. Urgent cases shall use the shortest reliable channel, recording when notice is received.
Article (39) — Failure to Report
A reservist shall not be considered in default unless notification or certain knowledge is established and no acceptable excuse exists. On reporting, military discipline shall apply insofar as related to active service. Criminal punishment shall require a statutory provision and a competent trial.
Article (40) — Call-Up Priority
Call-up shall consider actual need, readiness, recency of training, specialty, fair rotation and protection of critical civilian jobs. Selective call-up on political, regional or personal grounds shall be prohibited.
Article (41) — Reporting for Duty
From the documented reporting date, a called-up person shall be treated as an active service member for the period of duty, subject to military rules on command, discipline, uniform, weapons, safety and responsibility as appropriate to reserve status.
Article (42) — Pay and Allowances during Call-Up
Operational reserve service shall attract pay and allowances proportionate to rank or grade and assignment under a schedule issued through the budget law or a financial regulation grounded in law. Two Treasury-funded compensations for the same period shall not be combined except for an income differential or special right expressly prescribed.
Article (43) — Reserve Service Injuries
Injury or death during or because of call-up shall be a service injury or death, with the safeguards, compensation and care applicable to active personnel under current laws. Reserve status or original civilian employment shall not diminish these rights.
Article (44) — Equipment and Supplies
The Ministry shall not call units or individuals for combat or high-risk duties without appropriate equipment and training. Reservists shall not be required to purchase their own weapons, ammunition or basic protective equipment.
Article (45) — Ending Call-Up
Call-up shall end on expiry, cessation of its grounds or a decision by the issuing authority. Within a short period, the unit shall issue a reserve-service completion document recording days, duties, injuries, courses and entitlements necessary to update the register and return to civilian employment.
Article (46) — Safe Return
If the reservist was sent to another area, the Ministry shall provide transport to an appropriate reporting location when the mission ends and a reasonable rest period before return to civilian work, according to duty duration and nature. Instructions shall specify details.
Article (47) — Post-Call-Up Care
Participants in combat or high-risk missions shall receive a brief health assessment before release from call-up and referral where possible physical or psychological injury appears. Seeking psychological help alone shall not cause stigma or loss of civilian rights.
Article (48) — Readiness Report
The Ministry shall submit an annual unclassified report to the competent parliamentary committee on aggregate reserve strength by category, training and response rates, injuries, system costs and employment-protection cases. A classified annex may provide readiness details.
Chapter Four — Transition from Service to Civilian Life
Article (49) — Transition Programme
The Ministry shall establish a permanent transition programme beginning, for anticipated departures, up to twelve months before leaving service according to circumstances and continuing afterwards until essential referrals are completed. It shall not wait until unemployment or a health crisis occurs.
Article (50) — Individual Transition Plan
Every person leaving service shall receive a concise plan covering health, military and civilian qualifications, educational or vocational needs, pension or entitlement pathway, reserve status if eligible, and referral services required after departure.
Article (51) — Rights and Obligations Session
Before departure, the person shall receive a documented session explaining pensions, healthcare, challenges, reserves, identity documents, employment and training services, and duties concerning classified information and government weapons and equipment. A retrievable digital copy shall be provided.
Article (52) — Exit Health Examination
A reasonably comprehensive health examination shall take place at service completion to document potentially service-related injuries and illnesses. The individual shall receive a transferable medical summary for civilian healthcare, respecting confidentiality. Absence of symptoms on departure shall not preclude later proof of service connection through medical evidence.
Article (53) — Portable Service Record
Persons leaving service shall receive a digital or paper record documenting ranks, specialties, courses, skills, active service, established injuries, call-ups and awards, excluding classified information that may not leave the Ministry.
Article (54) — Translating Military Skills into Civilian Qualifications
With the ministries responsible for labour, higher education, education and professional bodies, the Ministry shall establish a matrix recognizing military skills as civilian qualifications and competencies wherever possible. Technicians, medics, drivers and technical specialists shall not have to relearn proven skills merely because job titles differ.
Article (55) — Advanced Vocational Training
Vocational rehabilitation programmes shall reflect actual labour-market needs; general courses shall not be adopted merely to absorb numbers. Priorities shall include technology, maintenance, energy, construction, logistics, digital services, trades, entrepreneurship and other fields according to local demand data.
Article (56) — Education and Completion of Studies
Eligible veterans may access grants, places or education loans under existing public programmes. Support under this Law shall prioritize those whose education was interrupted by service or who require education for rehabilitation after injury, within budget ceilings and published criteria.
Article (57) — Employment Services
The Ministry of Labour, in coordination with the Ministry, shall establish a dedicated pathway for career guidance, skills matching, CV preparation, interview training and access to private-sector opportunities. Veteran status shall confer no automatic public-sector job entitlement.
Article (58) — Public-Sector Employment
Limited preference points may be granted to veterans with service-related disabilities in suitable public job competitions, provided qualifications are met and merit, disability quotas and other constitutional balances are preserved.
Article (59) — Entrepreneurship and Self-Employment
A veterans' window shall be established within existing loan, small-enterprise and business-incubator programmes, with prior financial and marketing training. Status alone shall create no non-repayable loans or broad exemptions. Support shall depend on project viability and, for loans, repayment capacity.
Article (60) — No Link between Training and Permanent Assistance
Training and reintegration programmes shall aim at economic independence. Temporary assistance shall not continue after its grounds cease in a manner discouraging work, except compensation and payments linked to injury, disability or legally earned pensions.
Article (61) — Family Services
With the beneficiary's consent, spouses or caregivers may participate in guidance concerning transition, injury, family support and stress management. Mediation and referral shall be provided where needed through specialized bodies without creating a parallel family-affairs apparatus.
Article (62) — Legal and Administrative Support
One-stop service offices shall provide free legal and administrative guidance on proof of service, pensions, injury, challenges and documents, referring cases requiring court representation to legal aid offices, the Bar Association or accredited programmes.
Article (63) — Case Manager
Persons with serious injuries or complex needs shall receive a case manager to coordinate appointments, documents and referrals among defence, health, labour, pension, Martyrs Foundation and disability bodies. The manager shall not replace the competent body's legal decision-making authority.
Article (64) — Single Service Portal
Applications and tracking shall, wherever possible, use a unified government portal linked to the register, allowing beneficiaries to identify the processing body, stage and reasons for missing information or refusal. An in-person route shall remain available for those unable to use digital services.
Chapter Five — Health, Rehabilitation and Long-Term Care
Article (65) — Right of Access to Care
Veterans with service-related injuries shall have access to treatment and rehabilitation under applicable laws and programmes. The Ministry shall facilitate proof of status and referrals and ensure no injured person moves between bodies without an authority responsible for the case.
Article (66) — Establishing Service Connection
A medical committee shall determine whether injury or illness is service-related based on records and medical and operational evidence. Its reasoned decision shall specify disability percentage where needed. An application shall not be refused merely because one document is missing if reliable official alternatives can establish the facts.
Article (67) — Medical Review Committees
A medical review mechanism technically independent of the initial decision-making committee shall be established. The person concerned may submit additional reports. Decisions shall be issued within published periods, and necessary treatment shall not await final determination of disability percentage.
Article (68) — Physical Rehabilitation
Rehabilitation shall include physiotherapy, prostheses, assistive devices, mobility rehabilitation and adaptation to work and home, coordinated with national healthcare and disability bodies to avoid duplicate or incompatible equipment purchases.
Article (69) — Mental Health
Mental health and trauma treatment shall form an integral part of care, provided confidentially and with informed consent. Consulting a mental health professional or seeking treatment shall not automatically justify denial of civilian employment or rights, subject to statutory occupational safety requirements.
Article (70) — Addiction Prevention and Treatment
Care shall include voluntary screening and referral for substance-use and addiction problems associated with trauma or chronic pain. Treatment shall follow health and drug-prevention law without stigma, with safety rules applied when prescribing high-risk medicines.
Article (71) — Assistive Devices and Technologies
Eligible injured persons shall receive medically necessary devices, prostheses or assistive technologies under specifications and quality standards, accounting for maintenance, replacement and life cycle. Entitlement shall not be limited to initial purchase.
Article (72) — Caregivers
This Law shall coordinate with caregiver entitlements under disability and wounded-personnel laws and shall not create two salaries for the same care. Free caregiver training in injuries, devices and emergencies may be provided.
Article (73) — Remote Care
Mental health follow-up, rehabilitation and consultations may be delivered through telemedicine where safe and appropriate. Digital services shall not be a compulsory substitute for in-person examination when clinically required.
Article (74) — Treatment in Iraq and Abroad
Available quality treatment within Iraq shall take priority. Referral abroad shall follow independent medical criteria where necessary treatment or expertise is unavailable domestically, with cost audit and prevention of referral conflicts of interest.
Article (75) — Continuity of Treatment after Retirement
Treatment of a service injury shall not cease merely because of retirement or departure from the establishment. Funding or service responsibilities shall transfer between bodies under the law without exposing the injured person to an administrative gap.
Article (76) — Vocational Rehabilitation after Injury
The injured person's work capacity shall be assessed and reasonable accommodations, alternative training or a suitable occupation identified. Where work is possible, priority shall be given to safe, dignified employment before long-term assistance.
Article (77) — Chronic and Delayed-Onset Conditions
A case may be opened or reassessed where illness or disability appears years after service and reasonable medical evidence connects it to service or shows service-related aggravation. A regulation shall define evidentiary rules and periods without imposing limitation periods barring rights before a condition could naturally emerge.
Article (78) — Health Outcomes Register
The Ministry and health bodies shall collect anonymized data on injury types, rehabilitation outcomes and return to work for planning, prevention and safety improvement, without publishing individuals' names or politically evaluating them.
Chapter Six — Veterans' Services, Identity and Civil Rights
Article (79) — Veteran Card
A unified card or digital identity linked to national identity and the register shall be issued to veterans to verify status and facilitate services. It shall contain no sensitive operational, medical or security information and may later be integrated into the national digital identity.
Article (80) — Service Centres
The Ministry shall use and redistribute existing veterans' affairs departments and centres in governorates according to beneficiary numbers and need. New buildings or formations shall not be established before existing infrastructure is shown to be insufficient.
Article (81) — Priority in Processing
Wounded persons with severe disabilities, older persons and the sick shall receive procedural priority in applications and appointments. Priority shall not confer an entitlement unavailable to others or permit queue-jumping based on former rank.
Article (82) — Retirement
The National Pension Authority and Military Retirement Department shall exercise their statutory powers. The Ministry shall send a complete pension file, digitally wherever possible, before service ends. Asking the beneficiary to resubmit shall be a last resort where the bodies can exchange the document directly.
Article (83) — No Duplicate Compensation
Where the same harm falls under multiple laws or programmes, the more beneficial provision shall apply or compatible benefits expressly permitted by law may be combined. The same financial component shall not be compensated twice. The body shall explain any offsetting basis in writing.
Article (84) — Housing
Veterans and wounded personnel shall access existing housing and land programmes under their conditions and statutory priorities. This Law creates no universal land entitlement for every veteran, avoiding an unsustainable financial and property obligation.
Article (85) — Civilian Veterans' Associations
Veterans may establish civilian associations under the Non-Governmental Organizations Law or applicable legislation to provide support, advocacy and services. They shall not form armed units, store weapons, conduct unlawful combat training or use former ranks to exercise public authority.
Article (86) — Using Experience
Ministries, universities and training centres may engage veterans in civilian capacities for their expertise in education, training, crisis management, engineering, medicine, logistics and other fields, on competitive and merit-based terms without automatic appointment pathways.
Article (87) — Protection against Exploitation
No person may charge a share of a pension, compensation or benefit for processing a veteran's or wounded person's application unless a licensed lawyer or professional under a clear contract and lawful fees. The State shall provide free entitlement-verification channels to reduce exploitation and fraud.
Article (88) — Complaints
The Ministry shall establish an organizationally independent channel for complaints about delay, extortion, ill-treatment and lost files, issue tracking numbers and refer suspected corruption to the Commission of Integrity or Public Prosecution according to jurisdiction.
Article (89) — Grievances and Appeals
Anyone whose application is refused, classification lowered or inclusion in a benefit or reserve denied may lodge a grievance within thirty days of notification. The body shall decide within thirty days unless further medical examination is required. The decision shall then be appealable before the competent court under the law.
Chapter Seven — Special Reintegration Programmes for Persons Demobilized from Irregular Formations
Article (90) — Separation of Veteran Status and Disarmament Programmes
Former members of armed groups or formations outside State institutions shall not acquire veteran status under this Law merely from bearing arms or participating in combat. They may enter a special civilian disarmament, demobilization and reintegration programme established by an express lawful decision if its conditions are met.
Article (91) — Establishment of a Special Programme
Where a demonstrated security need exists within the State monopoly on weapons policy, the Council of Ministers may establish a time-limited reintegration programme for a precisely defined category. The decision shall specify legal basis, duration, bodies, funding and inclusion and exclusion conditions, with periodic reporting to the Council of Representatives.
Article (92) — Disarmament as a Prior Condition
Special reintegration assistance shall require surrender of unlicensed weapons, ammunition and equipment under the State Monopoly on Weapons Law, and cessation of any military formation, chain of command, stores or armed resources outside State institutions.
Article (93) — No Immunity
Registration or participation in reintegration shall confer no immunity from investigation or trial, obstruct no victims' rights, arrest warrants or judicial judgments, and extend no amnesty to matters legally ineligible for it.
Article (94) — Security and Legal Screening
Applicants shall undergo identity, criminal record, arrest warrant, armed affiliation and document checks. Exclusion from an administrative benefit shall be reasoned and reviewable, without unnecessary publication of security information.
Article (95) — Nature of Assistance
Assistance shall be limited according to need to civilian documents, psychosocial guidance, vocational training, employment services, education, limited transitional assistance and healthcare referral. No military rank, seniority or pension shall be granted for service not legally recognized.
Article (96) — No Reward for Bearing Arms
Benefits shall not unjustifiably exceed those available to conflict-affected civilians or jobseekers. Support may increase for disability, poverty or caregiving responsibilities, not the scale of former armed power.
Article (97) — Community Reintegration
Reintegration shall be implemented with local governments, civilian services and community institutions, considering community acceptance, stigma prevention, dispute resolution and victim compensation under relevant laws. It shall not be limited to a training course or payment.
Article (98) — Women, Children and Persons Associated with Groups
Women, children and non-combatants associated with armed groups shall be dealt with under applicable child protection, trafficking, violence, health and justice laws. A child shall not enter the veterans' or reserve system because of previous association with an armed group.
Article (99) — Programme Closure
Every programme shall have an end date and clear completion criteria. Cases requiring long-term support shall transfer to general health, labour and social protection systems, preventing a permanent parallel apparatus after the programme's purpose ends.
Chapter Eight — Governance, Financing and Oversight
Article (100) — National Coordination Committee
The Council of Ministers shall establish a permanent coordination committee without separate legal personality, chaired by a senior Ministry of Defence representative and including Finance, Labour, Health, Planning, Higher Education, the National Pension Authority, Martyrs Foundation, disability-care commission and other bodies as needed.
Article (101) — Powers of the Coordination Committee
The Committee shall resolve entitlement conflicts, adopt referral and data-sharing standards, review performance and cost indicators, propose amendments and coordinate reserve, civilian employment-protection and rehabilitation programmes. It shall not interfere with individual medical decisions, judicial judgments or pension entitlements assigned to another body.
Article (102) — Coordination with the Kurdistan Region
The federal Government shall coordinate with the Kurdistan Regional Government on shared veterans' matters, health and social services and necessary information exchange. This Law shall not automatically incorporate regional guard forces into federal reserves outside constitutional and legal frameworks and approved agreements.
Article (103) — Financing
Obligations under this Law shall be financed from competent bodies' annual appropriations. Off-budget funds or deductions from military salaries shall require a law. The budget shall separately identify reserve and training costs, care and rehabilitation costs, and temporary transition-programme costs.
Article (104) — Financial Priorities
Where appropriations are limited, priority shall go to treatment, injuries and disability; then obligations arising from reserve call-up and protection of rights; essential transition services; and optional education and enterprise programmes. Priorities and waiting criteria shall be published.
Article (105) — Prevention of Institutional Duplication
Before creating a unit or programme, every body shall explain why existing structures are insufficient. The Council of Ministers may merge similar Ministry of Defence units or assign a unified service to a designated body to reduce repeated visits and duplication.
Article (106) — Financial Audit
All reserve, care, training, grant and loan expenditure under this Law shall be subject to Federal Board of Supreme Audit oversight and internal audit. The Commission of Integrity shall have lawful file access, with health and security data protected.
Article (107) — Transparency
The Ministry shall publish annual aggregate data on service registrations, trained reservists, application-processing times, expenditure, return-to-work outcomes and complaints and grievances, without revealing personal data or sensitive military readiness.
Article (108) — Parliamentary Oversight
The Government shall submit an annual implementation report to the Council of Representatives covering financial sustainability of entitlements, reserve employment protection, healthcare, reintegration outcomes and special disarmament and reintegration programmes. A confidential readiness annex may be provided to the competent committee.
Article (109) — Outcome Measurement
Indicators shall measure outcomes, not merely registrations, including the proportion of reserves completing required training, response time, job losses due to call-up, pension-processing time, return to work or education, health rehabilitation outcomes and timely complaint closure.
Article (110) — Periodic Evaluation
Every three years, the Government shall commission an independent evaluation of reserve and veterans' and reintegration services, covering cost, fairness, outcomes, duplication and gaps. An unclassified summary shall be published and legislative recommendations submitted to the Council of Representatives.
Article (111) — International Cooperation
Competent bodies may cooperate with international organizations, universities and friendly States in training, rehabilitation and capacity-building, provided funding and grants comply with law. No foreign body shall access personal military or health records except under a lawful agreement and data-protection safeguards.
Chapter Nine — Offences and Violations
Article (112) — Falsification of Status or Entitlement
Anyone forging service, injury, disability or veteran identity documents, or knowingly submitting materially false data to obtain a benefit, shall be punished under the Penal Code. Unduly paid funds shall be recovered, with due regard to good-faith beneficiaries harmed by administrative error.
Article (113) — Trafficking in Benefits
Anyone buying, selling or brokering for unlawful remuneration the award of a job, land, compensation, loan or treatment referral under this Law shall be punishable. This shall not prohibit disclosed lawful legal and professional fees.
Article (114) — Disclosure of Register Data
Anyone intentionally disclosing or using personal, health or reserve-readiness data beyond authorized purposes shall be punished under applicable penal, data protection and national security laws, with aggravated responsibility where security harm or commercial exploitation results.
Article (115) — Obstruction of Return to Employment
Without prejudice to penalties under other laws, an employer intentionally refusing reinstatement or discriminating because of reserve status shall reinstate the worker and compensate lost pay and rights, actual harm and lost earnings. The court may order reinstatement where feasible.
Chapter Ten — Transitional and Final Provisions
Article (116) — Reorganization of the Directorate-General for Veterans' Affairs
Within one hundred and eighty days, the Directorate-General shall be reorganized to include, alongside existing tasks, clear units for service transition, veterans' services, the register and case management, avoiding unnecessary transfer of medical or pension powers from competent bodies.
Article (117) — Unifying Service Points
Within one hundred and eighty days, the Ministry of Defence shall map bodies visited by retirees, wounded personnel and veterans, consolidate reception interfaces and exchange files electronically so beneficiaries need not submit the same document to multiple government bodies where already available.
Article (118) — Former Iraqi Army Personnel
Former Iraqi army personnel's applications shall continue through the Directorate-General for Veterans' Affairs and competent bodies under applicable laws and decisions. This Law shall not restore service, rank or previously settled pension entitlements except under a statutory provision or judicial judgment.
Article (119) — Existing Wounded Personnel Files
Data held by the Personal Services Directorate, Wounded Personnel Rehabilitation and Care Directorate and other bodies shall transfer to an interoperable register while medical and financial decisions remain with competent bodies. Digital integration shall not halt pending applications or delay due payments.
Article (120) — Proposed Second Amendment to the Military Service and Retirement Law
On enactment of any new amendment to the Military Service and Retirement Law, the Government shall review this Law's pension, disability, age and service-period provisions within ninety days for conflicts and submit an amending bill where needed, without suspending compatible services.
Article (121) — Continuation of Acquired Rights
Pensions, compensation, medical decisions and entitlements acquired before entry into force shall remain valid unless lawfully revoked or amended by decision or judgment. Administrative reorganization shall not reopen settled rights to beneficiaries' detriment.
Article (122) — Data Transition
Within one year, bodies shall transfer basic records to secure digital infrastructure, with a plan for missing or conflicting records, secure copies, audit and correction controls and documentation of each item's source.
Article (123) — Instructions and Regulations
The Council of Ministers shall issue regulations on reserves, job protection and financing. The Minister shall issue implementing instructions on the register, training, transition and veterans' services within no more than one hundred and eighty days of entry into force.
Article (124) — Review of Intersecting Legislation
Within one year, the Council of Ministers' Secretariat-General, in coordination with the State Council and competent bodies, shall prepare a schedule of amendments needed to military service and retirement, unified pension, labour, social insurance, disability, compensation and other laws to ensure consistency, without suspending directly implementable provisions.
Article (125) — Repeal to the Extent of Conflict
Conflicting provisions shall be repealed or amended only to the extent of conflict. This shall not repeal financial, health or pension rights under special provisions unless expressly and specifically stated.
Article (126) — Entry into Force
This Law shall enter into force ninety days after publication in the Official Gazette. The intervening period shall be used to issue forms, transfer data, train staff and prepare employers for job protection arrangements.
IV — Statement of Reasons
To complete the organization of the armed forces with trained, callable reserves under civilian leadership; protect employment and social rights of citizens called from civilian work for defence duties; organize military-to-civilian transition before unemployment, lost records or aggravated injury arise; unify access to veterans' and wounded personnel's services while preserving pension, health and martyrs authorities' powers; link rehabilitation to work, education and family stability; and establish disciplined legal rules for disarmament, demobilization and reintegration without immunity or unearned military privileges, this Law has been enacted.
V — Explanatory Memorandum
1. Why Combine Reserves and Veterans in One Law?
Reserve service and transition are stages in the same personnel cycle. A person leaves active service, may remain for years in an organized reserve, and simultaneously moves into civilian work requiring health and professional documentation. Completely separate pathways create duplicate records and conflicting decisions. A single framework allows departure from service to establish the reserve file, transition plan and veteran identity together.
2. Why Not Create a New Veterans' Ministry or Authority?
The Ministry of Defence already has the Directorate-General for Veterans' Affairs, Military Retirement Department, Personal Services Directorate and Wounded Personnel Rehabilitation and Care Directorate. Adding an independent authority would create a new budget, leadership and establishment before solving information-sharing problems. The proposal instead reorganizes the existing body as a central gateway, with a government coordination committee lacking separate legal personality.
3. Job Protection Is Essential to a Real Reserve
A reserve relying on doctors, engineers, technicians and private-sector workers cannot function if call-up risks employment, seniority or pension contributions. Drawing on comparative experience such as USERRA in the United States, the proposal adapts job protection to Iraq: protected national service leave, reinstatement, continued seniority and limited compensation where extended call-up harms small businesses.
4. Transition Begins before Discharge
Most problems become more expensive after they arise: undocumented injuries, military skills unrecognized by employers, incomplete pension files or prolonged post-service unemployment. The law therefore makes transition an institutional function beginning before departure, covering health examination, skills records, employment or education planning, pensions and reserve status.
5. Support Is Not an Open-Ended Privilege
Veteran status matters for proving service and accessing services, but is not an automatic key to land, jobs and salaries. Financial rights remain governed by their laws and criteria of injury, need and service. This distinction prevents growing obligations and preserves the system's legitimacy with other citizens.
6. Wounded Personnel Need Case Management, Not Repeated Office Visits
Existing structures show that an injured person's file may involve Defence, pension authorities, the Martyrs Foundation, disability bodies and Health or Labour. The proposal does not merge these institutions; it requires a person or service point to coordinate the case so beneficiaries do not become responsible for carrying State correspondence between departments.
7. Reintegration Is Not Amnesty
Future State weapons-control processes may involve people who never belonged to official armed forces. International disarmament, demobilization and reintegration standards treat reintegration as a long social, economic and psychological process, without requiring rank or pensions. The proposal therefore distinguishes veterans from beneficiaries of temporary civilian programmes and affirms that participation does not bar investigation or victims' rights.
VI — Alignment with Existing Legislation and Institutions
| Existing Reference or Body | Relationship to the Bill |
|---|---|
| Constitution of the Republic of Iraq, 2005 | Civilian leadership and prohibition of militias under Article (9), national service regulated by law, and social security and care under Articles (30) and (31). |
| Military Service and Retirement Law No. (3) of 2010, as amended | Remains the authority for salaries, pensions and martyrs' and wounded personnel's rights; the proposal regulates reserves, transition and supplementary services. |
| Directorate-General for Veterans' Affairs — Ministry of Defence | Reorganized as a unified focal point and service body instead of creating a new authority, while former army files continue. |
| Military Retirement Department / National Pension Authority | Retain pension jurisdiction, with electronic file exchange and fewer beneficiary visits. |
| Personal Services Directorate and Wounded Personnel Rehabilitation and Care Directorate | Specialist functions remain, with linked data and case management through a single service point. |
| Martyrs Foundation and Compensation Laws | Not repealed or replaced; financial duplication prevented and injured persons or families referred to the competent entitlement authority. |
| Labour, Social Insurance and Civilian Pension Laws | Require harmonizing amendments to guarantee national service leave, reemployment and contribution credit during call-up. |
VII — Transitional Provisions and Implementation Requirements
| Requirement | Maximum period after entry into force | Principal body |
|---|---|---|
| Reorganize the Directorate-General for Veterans' Affairs and its transition, register and case-management units | 180 days | Ministry of Defence |
| Issue regulations on reserves, job protection and call-up compensation | 180 days | Council of Ministers / Defence / Finance / Labour |
| Launch the secure national register and link it to identity and service | 12 months | Ministry of Defence |
| Connect wounded personnel, pension and service files through a government exchange platform | 12 months | Defence / Pensions / Martyrs / Labour / Health |
| Issue the matrix equating military and civilian skills | 12 months | Defence / Labour / Higher Education / Education |
| Submit the first annual report to the Council of Representatives | After the first complete fiscal year | Council of Ministers / Ministry of Defence |
First-year priority is reforming administrative and digital processes and using existing infrastructure, not opening new institutions. All current applications, salaries and treatments shall continue during transition and may not be frozen pending completion of the new system.
VIII — Financial and Implementation Impact
Current public data cannot support a reliable aggregate figure. Costs depend on actual reserve coverage, injuries, training and call-up periods, rehabilitation caseloads and existing institutions' capacity to absorb new functions. The proposal therefore avoids unfunded universal cash entitlements and links expansion to annual budgets and actual data.
Establishment costs centre on the secure register, database connections, staff training, portal development, skills matrix and job protection arrangements. Operating costs include reserve training and allowances, health case management, transition and rehabilitation services. Reusing the existing directorate, centres and systems can reduce costs compared with a new authority, buildings and separate administrative establishment.
The proposal requires the Ministry of Finance and Government to present reserve and veterans' service costs separately with the defence budget. Any special disarmament and reintegration programme must state cost, duration and funding before launch. Open-ended obligations such as “all veterans receive land, a job or additional salary” are unacceptable because they cannot be controlled or sustained.
IX — Relevant International Comparison
| Model | Useful element | Reflection in the bill |
|---|---|---|
| United States — USERRA | Protection of reemployment, non-discrimination and continuation of certain rights for service members and reservists. | Protected national service leave, reinstatement and seniority, and prohibition of reserve-related discrimination. |
| Canada — Veterans Well-being Act | Combining career transition, education, training and rehabilitation services rather than limiting care to pensions. | A programme beginning before departure and integrating health, skills, work, education and case management. |
| United Kingdom — Armed Forces Covenant | Removing disadvantage caused by service and permitting special measures justified by service impact. | Limited, justified preference for wounded personnel and protection of access to healthcare and work without general privileges unrelated to need. |
| United Nations — IDDRS | Reintegration is a long social, psychological, economic and security process; training must relate to the labour market, and reintegration must remain separate from immunity. | A separate chapter for persons demobilized from irregular formations: disarmament, legal verification, limited civilian support and no automatic rank or pension. |
X — Compliance and Outcome Indicators
Effectiveness shall be measured by a limited set of auditable indicators: the proportion of classified reserves completing required training; average call-up response time; called-up persons returning to work without dispute; employment-discrimination complaints; pension-processing time from service completion; departing personnel receiving health and professional records before discharge; veterans in training entering work or education within twelve months; service-injury decision times; wounded personnel files managed by case managers; and applications completed without beneficiaries carrying documents between government bodies.
Special disarmament and reintegration programmes shall also be measured by weapons surrender rates, continued civilian compliance, entry into work or education, withdrawal or return to armed activity, and effects on host communities. Registration numbers alone shall not demonstrate success.
XI — Sources and References
- Constitution of the Republic of Iraq, 2005 — Iraqi Council of Representatives — Particularly Article (9) on armed forces, civilian leadership and national service, and Articles (30) and (31) on social security and healthcare. Official source.
- Military Service and Retirement Law No. (3) of 2010, as amended — Published in Iraqi Official Gazette issue 4143 on 8 February 2010; the first amendment was enacted by Law No. (41) of 2013 in issue 4294. Ministry of Justice — Iraqi Official Gazette.
- Iraqi Council of Representatives — Security and Defence Committee, 8 September 2026 — Completion of review and internal vote on the proposed second amendment to the Military Service and Retirement Law before legislative procedures. Official source.
- Iraqi Council of Representatives — Security and Defence Committee, 27 July 2026 — Attendance by the Military Retirement Department head, wounded personnel rehabilitation director and Ministry of Defence officials during discussion of the second amendment. Official source.
- Unified Electronic Portal — Ministry of Defence / Directorate-General for Veterans' Affairs — Service tracking pension applications for former army personnel, demonstrating the existing directorate and institutional service. Ur Portal.
- Ministry of Defence — Service for Wounded Military Personnel at the Martyrs Foundation — Explains the Personal Services Directorate's role in verifying wounded status and coordinating with the Martyrs Foundation. Ur Portal.
- Ministry of Justice — Decision No. (290) Establishing the Ministry of Defence Personnel Health Insurance Fund — Published in the Iraqi Official Gazette in 2016. Official source.
- Law No. (20) of 2009 on Compensation for Persons Affected by War Operations, Military Errors and Terrorist Operations, as amended — Second Amendment No. (2) of 2020, with implementing instructions issued in 2025. Ministry of Justice.
- Martyrs Foundation Law No. (2) of 2016, as amended — First amendment by Law No. (23) of 2024. Ministry of Justice.
- National Pension Authority — Procedures for Calculating Pension Entitlements — Includes military service and medical report requirements in pension applications. Ur Portal.
- U.S. Department of Labor — USERRA — A model protecting returning reservists' and service members' reemployment, non-discrimination and continuation of certain employment rights. Official source.
- Government of Canada — Veterans Well-being Act — A framework combining career transition, education, training, rehabilitation and financial assistance for veterans. Official text.
- United Kingdom — Armed Forces Act 2021 / Armed Forces Covenant Duty — The principle of removing service-related disadvantage and permitting special measures arising from former armed forces membership. Official legislation.
- United Nations — Integrated Disarmament, Demobilization and Reintegration Standards (IDDRS) — Treat reintegration as a long-term social, psychological, economic and security process, not merely short assistance or training disconnected from the labour market. Official source.
POL-29 · Ali Zuweid's Political Programme · 7 October 2026