Labour market integration of asylum seekers and refugees. Portugal

Transcription

1 Labour market integration of asylum seekers and refugees Portugal Written by Reinhard Naumann April 2016

2 EUROPEAN COMMISSION Directorate-General for Employment, Social Affairs and Inclusion Unit A1 Employment and Social Aspects of the European Semester European Commission B-1049 Brussels

3 Labour market integration of asylum seekers and refugees Portugal April,

4 Europe Direct is a service to help you find answers to your questions about the European Union. Freephone number (*): (*) The information given is free, as are most calls (though some operators, phone boxes or hotels may charge you). LEGAL NOTICE This document has been prepared for the European Commission however it reflects the views only of the authors, and the Commission cannot be held responsible for any use which may be made of the information contained therein. More information on the European Union is available on the Internet ( Luxembourg: Publications Office of the European Union, 2016 ISBN ABC DOI European Union, 2016 Reproduction is authorised provided the source is acknowledged. April,

5 Summary table on support available to (a) asylum seekers; (b) refugees; and (c) third country nationals (TCN) in Portugal Refugees Asylum Seekers Third Country Nationals Recipients of Subsidiary Protection Is the PES involved in the labour market integration of (a) asylum seekers (b) refugees (c) third country nationals (TCN)? YES YES YES YES Do (a) asylum seekers, (b) refugees and (c) TCN have access to: Hiring subsidies YES, the most important measure in this area is 'Estímulo Emprego' 1. As refugees after admission to 'instruction phase' As refugees As refugees Start-up (selfemployme nt) support YES 2. As refugees after admission to 'instruction phase' As refugees As refugees On-the-job training In principle YES, but in Portugal training is normally not In principle YES (after admission to 'instruction phase'), but in Portugal training is normally not In principle YES, but in Portugal training is normally not provided 'on the job'. In principle YES, but in Portugal training is normally not 1 The target groups are unemployed who receive unemployment benefit (UB), beneficiaries of social welfare (Social Income for Insertion - RSI) and some specific vulnerable groups (victims of domestic violence, ex-convicts, ex-drug addicts). Anybody who qualifies for the payment of UB (having been employed and paid social contribution etc.) or social welfare (RSI) or belongs to one of the referred vulnerable groups is entitled to receive support under the measure Estímulo Emprego, independently from his or her status (national, foreigner, refugee, asylum seeker etc.). 2 The target group of the most important measures in this area are unemployed who receive unemployment benefit (UB). Anybody who qualifies for the payment of UB (i.e. having been employed and paid social contribution) is entitled to receive support for self-employment, independently from his or her status (national, foreigner, refugee, asylum seeker etc.). Other measures like the Support Programme for Entrepreneurship and the Creation of Self- Employment (Programa de Apoio ao Empreendedorismo e à criação do próprio emprego) do not require one to register as unemployed. Refugees are entitled to benefit from this programme. April,

6 provided 'on the job'. Nonetheless, the measure 'employmentinternships' promoted by the national PES (IEFP) provides a type of training on the job. Refugees and persons who seek international protection are entitled to benefit from this measure on the same terms as national citizens. provided 'on the job'. Nonetheless, the measure 'employmentinternships' promoted by the national PES (IEFP) provides a type of training on the job. Refugees and persons who seek international protection are entitled to benefit from this measure on the same terms as national citizens. Nonetheless, the measure 'employmentinternships' promoted by the national PES (IEFP) provides a type of training on the job. Refugees and persons who seek international protection are entitled to benefit from this measure on the same terms as national citizens. provided 'on the job'. Nonetheless, the measure 'employmentinternships' promoted by the national PES (IEFP) provides a type of training on the job. Refugees and persons who seek international protection are entitled to benefit from this measure on the same terms as national citizens. Other labour market integration support? YES, for example in the form of language courses or Employment Insertion Contracts the letter for the unemployed beneficiaries of social welfare (RSI). YES, same as 'refugees' (see left). YES, same as 'refugees' (see left). YES, same as 'refugees' (see left). Is there a systematic mentorship scheme in place for (a) asylum seekers, (b) refugees and (c) TCN? YES, but as a service for all migrants and refugees (not specifically for this subgroup), on the basis of voluntary work YES, but as a service for all migrants and refugees (not specifically for this sub-group), on the basis of voluntary work YES, but as a service for all migrants and refugees (not specifically for this sub-group), on the basis of voluntary work YES, but as a service for all migrants and refugees (not specifically for this subgroup), on the basis of voluntary work Are (a) refugees, (b) asylum seekers and (c) TCN YES, if they have been regular workers and paid YES, same as 'refugees' (see left). YES, same as 'refugees' (see left). YES, same as 'refugees' (see left). April,

7 eligible to receive unemployment benefits or unemployment assistance? contributions to social security. If they do not qualify for UB, they may request the payment of social welfare (RSI). Are benefits that are generally received by (a) refugees, (b) by asylum seekers (if applicable) and (c) TCN, conditional on job search requirements/a ctivation? YES, this is an obligation of all beneficiaries of unemployment benefits YES, same as 'refugees' (see left). YES, same as 'refugees' (see left). YES, same as 'refugees' (see left). Does the support provided to (a) asylum seekers, (b) refugees (c) TCN end as soon as they get a job? In principle YES, but in each case the entity responsible for the support will analyse the situation of the family household. If the salary is higher than the social support for the family, the support stops. If the salary is lower (due to parttime work, intermittent work selfemployment, large family), the supporting entity pays the difference. In principle YES, same as 'refugees' (see left). In principle YES. In principle YES, same as 'refugees' (see left). Services that asylum seekers or refugees have access to that other TCN Specific support by the CPR (Portuguese Council for the Refugees) in social, legal and Same as refugees (see left) N/A Same as refugees (see left) April,

8 do not have access to. employmentrelated areas, adapted to the needs of refugees and asylum seekers. April,

9 1 What is the role of PES in integrating (a) (some 3 ) asylum seekers 4 and (b) refugees 5? If the PES is not involved, is there another agency dealing with the labour market integration of migrants? Does the support offered differ according to different factors (e.g. sociodemographic characteristics, family circumstances, host country language skills etc.)? Does the support differ according to the skill level of the target group? Are there specific programmes for these target groups? To what extent do these target groups benefit from measures for broader target groups? Introduction The national PES is involved in the integration of asylum seekers and refugees. Its support is mediated / provided by a specific body, the Portuguese Council for Refugees (CPR). Asylum seekers and refugees benefit from some specific programmes and also from broader measures. 6 Portugal s geographical location is far away from the major migration routes of refugees and asylum seekers in the Eastern and Central Mediterranean, and the country is not a particularly attractive final destination for refugees and asylum seekers. 7 Therefore, the number of refugees and asylum seekers in Portugal has been very low. In 2015, the Portuguese Frontier and Foreigners Service (SEF) registered 872 applications for international protection(2014: 442) and the Ministry of Interior recognized during the same year in 33 cases the refugee status and in 160 cases subsidiary protection. 8 The country received further 24 applicants for international protection under the European Agenda for Migration and the Relocation Program and 39 Egyptian refugees under the National Resettlement Program. 9. The Portuguese Council for the Refugees (CPR) estimates that, at the end of 2015, there were approximately 550 recognized refugees and 950 people with the status of 'subsidiary protection' living in Portugal (2014: 350 and 650, respectively) 10. These small (but rapidly increasing) numbers mean that the entry of refugees and asylum seekers into the country and their integration is not a major issue or source of political conflict within Portuguese public debate. This reduces the risk of large protests against the rights and benefits of refugees and asylum seekers, but on the other hand 3 The reasoning for including (some) is that there is no requirement by the EU that asylum seekers are included in integration policies. 4 Persons who have applied for international humanitarian protection but have not been granted it yet. 5 Covers all beneficiaries of international humanitarian protection both refugees and subsidiary protection. 6 See website of the CPR ( Áreas de intervenção -. GABINETE DE INSERÇÃO PROFISSIONAL (GIP). 7 During 2015, the SEF (Serviço de Estrangeiros e Fronteiras / Foreigners and Borders Service) whose mission is to enforce the immigration and asylum in Portugal, registered 872 application for international protection. In contrast, Germany registered during the fourth quarter of asylum applicants and Austria (see ). 8 CPR (2016) p Ibid. 10 Ibid. April,

10 it also reduces the pressure on political decision makers and on the public administration to respond in a timely and adequate manner to the challenges of integration. In 2015, the Portuguese government accepted to receive almost refugees from other EU Member States, 11 but very few have actually been transferred. Nonetheless, the government and the public administration are aware of a possible strong influx in the near future and have begun to prepare themselves for this challenge. 12 The role of the PES If the application of a refugee or asylum seeker is accepted as admissible by the Portuguese authorities, the process enters the 'instruction phase' and the applicant receives a provisional residence permit, which is valid for four months and can be renewed until the final decision about the status of the applicant is taken. According to the official 'Guide for Asylum Seekers' published by the Foreigners and Frontiers Service (Serviço de Estrangeiros e Fronteiras - SEF), this provisional residence permit grants access to the labour market, the public education system, the National Health Service and legal support. 13 The Asylum Law (Law 27/2008 and its revision by Law 26/2014) grants access to education, labour market, social security and health services on the same terms as those granted to national citizens for those who have already obtained the status of a refugee or 'subsidiary protection' (Articles 70, 71, 72 and 73). Refugee status grants a residence permit valid for five years (renewable), the 'subsidiary protection' grants a residence permit for three years (renewable after analysis of the situation in the country of origin) (Article 67). The central reception centre for refugees and asylum seekers is the Portuguese Council for the Refugees (Conselho Português para os Refugiados CPR), an NGO located in the Greater Lisbon Area. The CPR is the only place where refugees and asylum seekers can get accommodation. The CPR offers a unique set of services directed at the specific needs of refugees and asylum seekers (information, guidance, adapted language courses, legal support, etc.). 14 The CPR has an Office for Professional Insertion (Gabinete de Inserção Profissional GIP). In cooperation with public and private entities, the national PES (IEFP - Instituto de Emprego e Formação Profissional Institute for Employment and Vocational Training) has created a nationwide network of 451 GIPs as local contact points with the population, 10 of them with a specific offer for immigrants and one (the GIP-CPR) with a specific offer for refugees. Each GIP cooperates with the IEFP s local job centres. 15 The GIP-CPR operates in cooperation with the IEFP s local job centres in the area In February 2016 the Portuguese Minister for Foreign Affairs declaired the government s willingness to double this quota. See report Governo reitera disponibilidade para receber mais refugiados sírios in the online-journal OBSERVADOR, 29th Feburary 2016, in: 12 Interview with Filipa Silvestre 13 See SEF (no date) Guia do Requerente de Asilo [Guide for the Asylum Seeker]], pages See Tito Navarro da Cunha Campos e Matos (2011) Mestrado em População, Sociedade e Território, p See 16 In 2001, the Portuguese Council for Refugees (Conselho Português para os Refugiados - CPR) created a specific service for the professional integration of refugees and asylum seekers. The activity of this service is supported by the national PES (Instituto de Emprego e Formação Profissional - IEFP) and carried out in cooperation with the local job centre (Centros de Emprego) that belong to the IEFP. See CPR (2016), p. 19. In 2009, the CPR extended the support of this service to the local community. The service is now part of the IEFP s national network of local GIPs (Offices for Professional Insertion). See and Interview with Filipa Silvestre In 2014, the CPR s GIP registered 237 new beneficiaries, 57 of them Portuguese. The service provided consists mostly of support with an active job search, hiring subsidies and access to April,

11 Up until summer 2015 when the public administration was less aware of the specific needs of refugees and asylum seekers the standard offer of the IEFP for refugees and asylum seekers was participation in the language programme 'Portuguese for all' (Português para todos PPT). The IEFP s PPT-courses are directed at all migrants and a sufficient number of participants are necessary for them to be carried out. In contrast, the language courses offered by the CPR (levels A1 and B1) are financed by the European Refugee Fund (ERF) and are adapted to the specific needs of refugees and asylum seekers and are provided permanently 17. Until recently, the IEFP did not automatically register refugees and asylum seekers as candidates for a job or a training offer. Due to the CPR s intervention and in the context of growing awareness, this is changing. Given that until recently the IEFP s support for refugees and asylum seekers was largely limited to the provision of language courses; there was no differentiation between measures in terms of socio-demographic characteristics, family circumstances, host country language skills, or the skill level of the target group. 18 The Asylum Law states in Article 55 that refugees and asylum seekers have access to ALMP-measures in conditions to be defined by the responsible Ministries. It seems that no specific measures of this type have been created yet How does the support provided to (a) (some) asylum seekers and (b) refugees compare to other categories of migrants (third country nationals)? The support provided to asylum seekers and refugees is largely identical with the support to other categories of migrants and even to nationals, with the following specifications. The Asylum Law (2014) guarantees access to ALMP-measures under the conditions to be established by the responsible ministries (Article 55) and specifies in Article 71 that persons with the status of refugee and with subsidiary protection have access to the labour market in the terms of the general law (71-1) and that they are entitled to receive professional training and practical experience at the workplace under the same conditions as national citizens (Article 71-2) 20 The Aliens Law (2007) guarantees to immigrants with a long-term residence permit equal treatment in relation to nationals with regard to the access to an independent or dependent professional activity (Article 133-a), to the working conditions (133-b), to vocational education and training, including subsidies and grants (133-c), and to the recognition of professional diploma, certifications and other titles (133-d). 21 Thus refugees as well as asylum seekers who have received a provisional residence permit during the instruction phase of their application process possess the same rights to equal treatment as long-term immigrants from third countries. education and training. Two cycles of collective training sessions on active job searches specifically targeting refugees were organized. 17 In 2008, the Portuguese government created the measure 'Portuguese for All' (Português para todos, PPT). This measure provides free language courses for migrants and their families, with certifications from A2 level to B2 level. PPT-courses are part of the standard set of services offered by the local job centres that belong to the national PES (IEFP) and by public schools. In 2014, 28 job-centres (IEFP), 3 training centres and 48 public schools offered PPT-courses. According to provisional data published by the High Commissioner for Migration (Alto Comissário das Migrações ACM), 200 courses were provided in 2014, with 5,630 participants, of whom 3,912 received a certificate. In 2014, the CPR provided 1,125 hours of language-lectures, from levels A1 (beginners) to B1 (intermediate). 18 Interview with Filipa Silvestre 19 Asylum Law (2014) 20 Asylum Law (2014) Articles 55 and Aliens Law (2007) Article 133 Igualdade de tratamento. The Aliens Law was amended in 2012 and (twice) in 2015, but the cited article 133 remained unaltered. April,

12 One problem is that the national PES (IEFP) usually did not register refugees and asylum seekers for other forms of support than the language courses 'Portuguese for all'. The extension of the support offer depended on the initiative of the refugee, frequently assisted by the Office for Professional Insertion at the Portuguese Council for the Refugees (GIP-CPR). This seems to be changing in the sense that the IEFP s job centres are now more open to registering refugees as candidates for a broader offer of employment-related and training services. 22 The support offered by the GIP-CPR is certainly essential for making the legal rights of refugees effective. The same applies probably to the ten specific GIPs for regular migrants without refugee status. No statistical data could be found to further discuss this issue. 3 Do (a) asylum seekers, (b) refugees and (c) other thirdcountry migrants have access to other ALMPs such as: Hiring subsidies, Start-up (self-employment) support On-the-job training Other labour market integration support? In principle, asylum seekers, refugees and other third-country migrants have access to the same ALMPs as nationals. As demonstrated in section 2, the Asylum Law (Lei 26/2014) and the Aliens Law (2007) stipulate that the rights in terms of access to the labour market and ALMP-measures are similar for asylum seekers and beneficiaries of subsidiary protection (once they have obtained a provisional residence permit) on the on hand and for long-term immigrants on the other hand. Both laws mention explicitly the access to employment and to vocational education and training. The definitions of the target groups given in the specific regulations of employment and training measures usually do not distinguish between nationals and non-nationals: The regulation of the most important measure for hiring subsidies (Estímulo Emprego) 23 defines the recipients of unemployment benefits or of social welfare as the primary target group of the measure. The regulation of the support to entrepreneurship and self-employment 24 defines the unemployed, young people searching for their first job, persons who have never done paid work before and workers with salaries below the national minimum wage as the target group of the measure. The regulation of the most important measure for on-the-job training (Estágios Emprego / Employment Internships) 25 defines the young unemployed as the primary target group of the measure. These regulations do not specify the access of non-nationals to the measures. The measure Estímulo Emprego targets the beneficiaries of unemployment benefits, and this hinders a large share of foreigners (those who have not worked and paid social contributions) from accessing this ALMP. 26 Another problem is, as mentioned above (section 2), that, until recently, the national PES (IEFP) usually did not register refugees and asylum seekers for forms of support other than the language courses 'Portuguese for all'. The extension of the support offer 22 Interview Filipa Silvestre. 23 MSESS (2014) 24 MTSS (2009) 25 MEE (2013) 26 See regulations Interview with Filipa Silvestre and author s own reasoning. April,

13 largely depended on the initiative of the refugees, although this now seems to be changing, with the IEFP's job centres offering more services for refugees What are the concrete obstacles/challenges faced by (a) asylum seekers and (b) refugees in successfully integrating into the labour market? The major concrete challenges faced by asylum seekers and refugees in successfully integrating into the labour market are language skills and lack of familiarity with the way Portuguese companies operate, the recognition of their educational achievements and some bureaucratic problems. 28 In most cases, the first obstacle is language, particularly for refugees, whose native language is a not European language. A further obstacle is the poor psychological state of refugees and asylum seekers, many of whom are separated from their families and/or come from countries in unstable situations. In some cases, the refugees make active use of the support offered to them in order to gain some psychological stability, but in many other cases their state reduces their concentration and endurance. More generally, the health status of some refugees is also a problem for their integration into the labour market. 29 As the central body responsible for receiving refugees and asylum seekers, the CPR makes a systematic assessment of the needs of all incoming persons. The CPR official (who has a qualification in social services) proposes psychological support in cases when: he or she detects mental problems of the person; the refugee / asylum seeker requests it; or other professionals have indicated that this support is necessary. This psychological support is provided by the Centre for Support of Victims of Torture (CAVITOP - Centro de Apoio à Vítima de Tortura em Portugal) via weekly (individual and group) therapy sessions. The CPR is currently participating in the international project 'Time for Needs', in order to create a tool that enables the assessment of the vulnerabilities of refugees and asylum seekers. 30 Most IEFP training offers require a certain educational and qualification level. A large share of refugees lack the documents to prove their educational and qualification status. For varying reasons, it is often impossible for them to obtain these documents from their countries of origin. This is a major obstacle for their participation in adequate training and also in getting an adequate job. 31 Finally, there is a serious problem related to the residence permit for refugees and the beneficiaries of subsidiary protection. The format and text of the permit issued by the Foreigners and Frontiers Service (SEF) frequently causes doubts amongst potential employers as to whether this type of residence permit includes a work permit. In view of this uncertainty, employers often give preference to other candidates whose status does not raise doubts Is there a systematic mentorship scheme in place for (a) asylum seekers and (b) refugees integrating into the labour market (and/or society more generally)? In 2013, the NGO GRACE (Grupo de Reflexão e Apoio à Cidadania Empresarial / Study and Support Group for Entrepreneurial Citizenship) started a pilot project with 31 mentorships supporting migrants in their integration efforts. 33 In 2014, the High 27 Interview Filipa Silvestre 28 CPR (no date) p Ibid and Interview with Filipa Silvestre. 30 Interview with Filipa Silvestre 31 CPR (2015) p Interview with Filipa Silvestre and CPR (no date) p GRACE (2014) p. 6 April,

14 Commissioner for Migration (ACM) officially launched the nation-wide programme 'Mentors for Immigrants'. At the end of 2014, the ACM registered 85 mentors and 31 beneficiaries in the programme. The programme is based on the active participation of volunteers as mentors and on the support from companies (social corporate responsibility). 34 Although refugees may benefit from the ACM s national mentorship scheme, there is no specific mentorship scheme for them. In principle, the mentorship is open to all migrants (including refugees), but its execution depends on the availability of volunteers who are able to respond to the specific needs of each applicant. Asylum seekers and refugees may register at the ACM s website and apply for the support of a mentor at one of the approximately 54 local partners of the ACM s mentorship program. (The CPR itself is not a local partner of the mentorship program.) 35 6 Are (a) refugees and (b) (if applicable) asylum seekers eligible to receive unemployment benefits or unemployment assistance? Refugees and asylum seekers are eligible to receive unemployment benefits or unemployment assistance if they meet the requirements (identical to those for nationals). Refugees and stateless persons are entitled to receive the regular unemployment benefit (subsídio de desemprego) if they possess a 'valid title of temporary protection' (status of refugee or 'subsidiary protection') and if they comply with the general requirements: residing in Portugal, having had a job with a work contract and having paid contributions to the Social Security and/or having lost the job against his or her will and been registered as unemployed at the national PES, etc. The regular unemployment benefit is paid for between 150 and 540 days (according to the age and duration of past contributions to social security). The amount corresponds in general to 65 % of the 'reference salary'. Refugees and stateless persons are also entitled to receive the 'social unemployment benefit', which is paid under certain conditions after the end of the regular unemployment benefit if they possess a 'valid title of temporary protection' (status of refugee or 'subsidiary protection'). Foreigners who are not refugees are also entitled to receive the unemployment benefits (regular and social unemployment benefit) if they possess a valid residence permit or 'another permit that allows them to have a work contract' In what ways are benefits that are generally received by (a) refugees and (b) by asylum seekers (if applicable), conditional on job search requirements/activation? Benefits generally received by refugees and by asylum seekers are conditional on job search requirements/activation in the same way as is the case with benefits for nationals. The Asylum Law (Law 27/2008 and Law 26/2014, Articles 56, 57 and 59) grants social support under certain conditions to applicants for refugee status or 'subsidiary protection', in the form of accommodation and food (in kind) and financial support. The central criterion for this social support is the proven need and lack of means of the applicant. The Asylum Law (Article 60) stipulates that the termination of the social support occurs at the time of a decision about the status of the applicant, with the possibility of continuing the support in cases of proven necessity. The same article of 34 ACM (2015) p Ibid and ACM s website for mentorships: 36 ISS (2015) p. 5 and ISS (2016) p. 5 April,

15 the law stipulates that the social support can be reduced if the applicant does not comply with his or her duties. The Asylum Law does not mention job search requirements/activation as a condition for the social support. 37 Legislation on the payment of unemployment benefits includes job search requirements/activation mechanisms that apply to all beneficiaries (mandatory acceptance of 'convenient employment', socially necessary work, vocational training and other ALMP measures), including migrants, refugees and asylum seekers Does the support provided to the (a) asylum seekers, (b) refugees and (c) other migrants end as soon as they get a job or does it continue for a while during the first phase of their employment? If yes, what support continues? The material social support (accommodation, food, money) for refugees and asylum seekers granted by Article 56 of the Law 26/2014 ends as soon as they start a paid job (Article 54 of the same law). 39 Nonetheless, the CPR continues its non-material support to employed refugees and asylum seekers (legal support, information and guidance), if they require it. Furthermore, employed refugees and asylum seekers are entitled to support from the national PES (such as vocational education and language training). 40 As a salaried worker, the asylum seeker, refugee or migrant begins his or her 'career' as a contributor to social security and acquires the respective entitlements (unemployment benefit, social unemployment benefit, retirement pension). 9 To what extent are social partners systematically involved in (a) labour market integration service provision and/or (b) labour market integration service/policy definition and design? Social partners are systematically involved in the labour market integration of all migrants. 41 Employers and trade unions confederations are members of the Committee for Migration, the consultative body at the ACM. The ACM is the central public body for the integration of all migrants. 42 Employers and trade unions confederations are also represented at the governing bodies of the national PES (IEFP) at central, regional and local level. The IEFP is responsible for the provision of the national ALMP measures that benefit all workers and the unemployed, including migrants, refugees and asylum seekers. 43 The training centres in the employers and trade unions confederations and their affiliates participate directly in the implementation of ALMP measures that benefit all workers and unemployed, including migrants, refugees and asylum seekers Asylum Law (2008) and Asylum Law (2014) 38 ISS (2015) p and ISS (2016) p Asylum Law (2008) and Asylum Law (2014) 40 Interview with Filipa Silvestre 41 Interview with Carlos Trindade 42 ACM (2014) 43 The employers confederation CIP is rpresented at this body (see CIP (no date)). The other social partners peak level asociations with access to the tripartite Standing Commission for Social Concertation have in principle- access to the same bodies like CIP April,

16 10 To what extent is the labour market integration of refugees well-coordinated within the country? Do employment agencies and asylum authorities coordinate? The Portuguese government has made important efforts to improve coordination around the labour market integration of refugees. On 24 September 2012, several public and private entities signed a 'Protocol of Cooperation with regard to the support for refugees and asylum seekers' (Protocolo de Cooperação em matéria de apoio a refugiados e requerentes de asilo) 45. The group of signatories consisted of the: i. Institute of Social Security (Instituto de Segurança Social ISS) ii. Foreigners and Frontiers Service (Serviço de Estrangeiros e Fronteiras - SEF) iii. Institute of Employment and Vocational Training (Instituto de Emprego e Formação Profissional IEFP) iv. Santa Casa da Misericórdia de Lisboa [Holy House of Mercy], a nongovernmental charity v. High Commissioner for Migration (Alto Comissariado para as Migrações - ACM) vi. Portuguese Council for Refugees (Conselho Português para os Refugiados - CPR) The Protocol was approved by the Ministry of the Interior and the Ministry of Solidarity, Employment and Social Security. 46 The implementation of the Protocol is monitored by a Monitoring Committee (Comissão de Acompanhamento) and coordinated by an Operative Group (Grupo Operativo), with representatives of each entity. The Operative Group meets on a monthly basis and is an important instrument for the effective coordination between, and cooperation of, the involved entities. 47 There are plans to add three further entities to the Protocol, namely the Ministry of Education, the Ministry of Health and the Jesuit Refugee Service (JRS). This extension of coordination seems to be most adequate because it includes two Ministries of central importance for the integration of refugees and asylum seekers and one of the most important (if not the most important) NGO with expertise in this area. 48 Furthermore, the CPR has direct cooperation agreements with the Institute of Social Security (ISS), the Foreigners and Frontiers Service (SEF) and the Institute of Employment and Vocational Training (IEFP). 49 The High Commissioner for Migration (ACM) is a public body and has a central function relating to the integration of migrants. The 'Strategic Plan for Migration ', approved by the government in March 2015, is based on a cohesive and cross-cutting policy approach. 50 The Protocol of Cooperation and the activities of the CPR and the ACM grant a certain level of coordination between the efforts for the labour market integration of refugees. The growing political awareness of the challenges of integrating refugees and the extension of the Protocol of Cooperation indicate that the level of coordination is improving and o_refugiados 14_09_2012_.p df 46 Ibid 47 Interview with Filipa Silvestre 48 Ibid PCM (2015) April,

17 References All internet links last consulted on May 29 th 2016 ACM (2014) Conselho para as Migrações ( ) [Council for Migrations ( )], Lisbon / ACM High Commissioner for Migrations, Internet: %C3%B5es..pdf/bc082f48-eb5f-4347-af80-c405bdcdc424 ACM (2015) Relatório de Atividades 2014 [Annual Report 2014], Lisbon / ACM High Commissioner for Migrations, Internet: 08c-d71c-4511-a574-91ba86625d84. Aliens Law (2007) 51 [Law 23/2007] published in: Diário da República, 1.a série N.o de Julho de 2007, pages , Internet: Asylum Law (2008) [Law 27/2008] published in: Diário da República, 1.ª série N.º de Junho de 2008, pages ; Internet: Asylum Law (2014) [Law 26/2014] published in: Diário da República, 1.ª série N.º 85 5 de maio de 2014, pages ; Internet: Campos e Matos, T (2011) A Inserção dos Refugiados Reinstalados no Mercado de Trabalho Uma etapa num processo de integração?- Contributos para uma análise das dinâmicas de integração dos reinstalados em Portugal e na União Europeia [The insertion of resettled refugees in the labour market A stage in the process of integration? Contributions for an analyis of the integration dynamics of the resettled in Europe and Portugal], Master Thesis, University of Lisbon CIP (no date) ÓRGÃOS E INSTITUIÇÕES DE QUE A CIP FAZ PARTE [Bodies and institutions where CIP is represented], Lisbon / Entrepreneurial Confederation of Portugal, Intrnet: CPR (no date) Curso e-learning de Sensibilização sobre Asilo e Refugiados 9.4 Acesso ao mercado de trabalho: emprego e formação profissional [E-learning course for awareness about asylum and refugees 9.4 Access to the labour market: employment and vocational training ], Lisbon / CPR Portuguese Council for the Refugees, Internet: CPR (2013) Relatório de Actividades 2012 [Annual Report 2012], Lisbon / CPR Portuguese Council for the Refugees, Internet: CPR (2015) Relatório de Actividades 2014 [Annual Report 2014], Lisbon / CPR Portuguese Council for the Refugees, Internet: CPR (2016) Relatório de Actividades 2015 [Annual Report 2015], Lisbon / CPR Portuguese Council for the Refugees, Internet: 51 The Aliens Law was amended in 2012 and (twice) in 2015, but the article 133 on equal treatment cited in this report remained unaltered. See Lei 29/2012 ( Lei 56/2015 ( and Lei n.º 63/2015 ( April,

18 GRACE (2014), Relatório e contas 2013 [Report and accounts 2013], Lisbon / Study and Support Group for Entrepreneurial Citizenship, Internet: 3o% pdf GRACE (2015), Relatório de gestão da direcção no ano de 2014 [Annual Report of the Board 2014], Lisbon / Study and Support Group for Entrepreneurial Citizenship, Internet: ISS (2015) Guia Prático SUBSÍDIO SOCIAL DE DESEMPREGO, INICIAL OU SUBSEQUENTE AO SUBSÍDIO DE DESEMPREGO, Lisbon, November ISS (2016) Guia Prático SUBSÍDIO DE DESEMPREGO [Practical Guide Unemployment Subsidy], Lisbon January 2016; ISS MEE (2013) Portaria 204-B/2013 [Ministerial Order 204-B/2013], Lisbon / Ministry of Economy and Employment, Internet: MSESS (2014) Portaria 149-A/2014 [Ministerial Order 149-A/2014], Lisbon / Ministry of Solidarity, Employment and Social Security, Internet: MTSSS (2009) Portaria 985/2009 [Ministerial Order 985/2009], Lisbon / Ministry of Labour, Solidarity and Social Security, Internet: PCM (2015) Resolução do Conselho de Ministros n.º 12-B/2015 [Resolution of the Copuncil of Ministers 12-B/2015], Lisbon / Presidency of the Council of Ministers, Internet: +Migra%C3%A7%C3%B5es+%28PEM%29_RCM.pdf/b6375f51-53e2-4d cf1c7bb91c SEF (no date) Guide for Asylum Seekers, Lisbon / Frontier and Foreigners Service, Internet: Interviews: Filipa Silvestre, Office for Professional Insertion at the Portuguese Council for the Refugees (GIP-CPR), Lisbon, 5 February 2016, and subsequent contacts by and telephone Carlos Trindade, member of the board of the trade union confederation, CGTP-IN (responsibility: department of migration) and member of the European Economic and Social Committee, Lisbon, 4 February 2016, and subsequent contacts by and telephone April,

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