Access to the labour market is not a given for many groups in Portugal. The unemployment rate for the 1st quarter of 2024 stood at 6.8%, 0.2 percentage points more than in the 4th quarter of 2023 and 0.4 percentage points less than in the 1st quarter of 2023. There has been an expansion in the labour workforce, primarily among men aged 25 to 34.[1] However, unemployment is higher among young people and women. In the fourth quarter of 2023, overall youth unemployment in the European Union was 14.7%, while Portugal’s rate was 23.9%, the fourth highest.[2]

Eingliederung von Migranten, Flüchtlingen, Asylbewerbern und Minderheiten

In 2023, approximately 800,000 foreign nationals resided legally in Portugal of whom around 76% came from non-EU countries. Notably, 31% of the immigrant population was at risk of poverty or social exclusion.[3] Around 2 million people in Portugal faced the risk of poverty or social exclusion in 2023, including individuals living in households with very low labour intensity per capita or experiencing severe material and social deprivation.[4] While poverty affects a broad spectrum of the Portuguese population, it is disproportionately higher among foreign residents.

The Foreigners and Borders Service (SEF) was restructured in 2023, and its functions were transferred to the Agency for Integration, Migration, and Asylum (AIMA) in order to separate police and administrative duties. Though this change was intended to improve the migration system, it has instead created chaos for many immigrants. The backlog of cases related to residence permits has reached nearly half a million.[5] The Ombudsman’s Office has identified several issues in AIMA’s services for immigrants, which include: residence permit processes that can take up to three years to be reviewed; the inability to schedule appointments for family reunification (a violation of the fundamental right to family life); and technical problems with online platforms that hinder the efficient submission of applications.[6] The shortage of human resources at AIMA is also a significant concern, and there are no signs of improvement for the near future. Asylum procedures have been routinely fast-tracked, as permitted under Article 19 of the Asylum Law, although the NSG notes that this process should be the exception rather than the norm.[7] This exceptional procedure is meant to be activated only when authorities are certain that the asylum seeker does not qualify for protection. However, it has been used for many requests, signalling a lack of thorough analysis of individual cases, which often leads to incorrect decisions and breaches of migrants' rights. In addition, translation services are inadequate, and there is a lack of interpreters available for many asylum seekers’ native languages. That forces them to undergo interviews in languages they do not understand, such as French or English. This also showcases a clear example of the silencing of civil society. The implementation of ineffective policies that do not reflect the realities faced by this population has exacerbated the immigration crisis, resulting in over 400,000 cases in which regularisation is pending.[8] The situation for many asylum seekers is particularly dire, with hundreds now homeless on the streets of Portugal. While AIMA's new management attempts to introduce a new IT system, essential needs such as accommodation and food remain unaddressed. In its first six months, AIMA faced more than 7,500 lawsuits from immigrants seeking updates on their regularisation processes, many of which have been pending for up to three years.[9]

In 2023, a new pathway for regularisation was introduced for citizens of the Community of Portuguese-Speaking Countries (CPLP) through the CPLP Residence Permit. However, this permit does not meet the criteria for a valid EU residence permit is not recognised as valid, many holders have faced difficulties, such as being unable to work in certain professions (e.g., truck driving) or to travel for leisure within the European Union. Additionally, if stopped by authorities in other EU countries, they are often sent back to their country of origin instead of Portugal, further limiting their freedom of movement. This has led the European Commission to initiate infringement proceedings against Portugal.[10] Inside the country, unclear communication regarding the permit’s validity has led many public institutions to deny services to individuals holding one.

[1] Portugal National Statistics Institute (2024), Employment Statistics: https://www.ine.pt/ngt_server/attachfileu.jsp?look_parentBoui=665524875&att_display=n&att_download=y#:~:text=The%20youth%20unemployment%20rate%20(16,pp%20from%20a%20year%20earlier.&text=quarter%20of%202024-,Source%3A%20Statistics%20Portugal%2C%20Labour%20Force,Survey%20%E2%80%93%201st%20quarter%20of%202024.&text=long%2Dterm%20unemployment)-,Source%3A%20Statistics%20Portugal%2C%20Labour%20Force,Survey%20%E2%80%93%201st%20quarter%20of%202024      

[2] Eurostat Euroindicators (2024), Euro Area Unemployment at 6.4%: https://ec.europa.eu/eurostat/documents/2995521/18426688/3-01022024-BP-EN.pdf/13e802f5-a267-0b8a-6245-52f759f7cfe3 

[3] Pordata (2023), Pordata publishes a portrait of the foreign population and migratory flows in Portugal: https://pmf-sef.pt/wp-content/uploads/2023/12/PORDATA-dia-Internacional-dos-Migrantes-2023-12-12.pdf

[4] Portugal National Statistics Institute (2023), Income and living conditions: https://www.ine.pt/xportal/xmain?xpid=INE&xpgid=ine_destaques&DESTAQUESdest_boui=639503443&DESTAQUESmodo=2

[5] Diário de Notícias (2024), estimates that 410,000 immigrant cases are pending in Portugal": https://www.dn.pt/3912218670/aima-calcula-em-410-mil-os-processos-de-imigrantes-pendentes-em-portugal/

[6] Provedoria de Justiça (2023), Monitoring the Activity and the Process of Extinction of the Aliens and Borders Service - Report I:  https://www.provedor-jus.pt/documentos/Relat%C3%B3rio%20SEF072023.pdf

[7] Procuradoria Geral da República, Law 27/2008, Granting Asylum or Subsidiary Protection: https://www.pgdlisboa.pt/leis/lei_mostra_articulado.php?nid=1584&tabela=lei_velhas&nversao=1

[8] Sic Noticias (2024) "Requires urgent response": Marcelo's new warning about the situation at AIMA: https://sicnoticias.pt/pais/2024-06-01-video-exige-resposta-urgentissima-o-novo-alerta-de-marcelo-para-a-situacao-na-aima-8cf93684 

[9] Executive Digest (2024) Migrants file more than 50 lawsuits a day against AIMA to speed up residence permits: https://executivedigest.sapo.pt/noticias/migrantes-colocam-mais-de-50-processos-judiciais-por-dia-contra-a-aima-para-acelerar-autorizacao-de-residencia/

[10]  European Comission (2023), “September Infringiment Package: key decisions”: https://ec.europa.eu/commission/presscorner/detail/en/inf_23_4367

Angemessene Löhne

The minimum wage in Portugal in 2024 is €820 per month,[1] which is insufficient to cover essential expenses such as rent, utilities, groceries, and transportation and ensure a dignified standard of living. With inflation at approximately 3.2%, the cost of goods and services continues to rise, while wages are stagnant. Both the national minimum wage and the average salary in Portugal rank among the 10 lowest in the European Union. In the EU, 22 countries have an established minimum wage, with Portugal occupying 11th place among them. In terms of purchasing power, the Portuguese minimum wage ranks 14th among EU countries.[2] According to the European Commission, house prices in Portugal are overvalued,[3] meaning they exceed their fundamental market value, making them disproportionately expensive relative to income levels or economic conditions.

According to a study by Caritas the minimum wage in Portugal is inadequate to cover the living costs, as these keep growing at a higher pace than wages. This is coupled with concerning figures on in-work poverty, which was around 10% in the country in 2022.[4]  Women are disproportionately affected by the inadequacy of the minimum wage due to the persistent gender pay gap. Portugal has the 15th largest gender pay disparity in the European Union, and true parity is projected not to be achieved for another 28 years, and then only if the country can reverse the direction of the past three years.[5]

[1] Pordata (2023), Minimun National Salary: https://www.pordata.pt/en/node/1731

[2] The Portugal News (2024), Portugal Minimum Wage 26% less than Spain: https://www.theportugalnews.com/news/2024-04-30/portugal-minimum-wage-26-lessthan-spain/88409

[3] Portugal News (2023), European Commission warns of ”overpriced“ property in Portugal: https://www.theportugalnews.com/news/2023-12-22/ec-warns-of-overpriced-property-in-portugal/84435

[4] The Portugal News (2022), Minimum wage is not adequate” to avoid poverty: https://www.theportugalnews.com/news/2022-02-23/minimum-wage-is-not-adequate-to-avoid-poverty/65451

[5] Luís Leitão (2023), Pay parity between men and women is not expected to reach Portugal until 2051”: https://eco.sapo.pt/2023/03/08/paridade-salarial-entre-homens-e-mulheres-so-devera-chegar-a-portugal-em-2051/

Raum für die Organisationen der Zivilgesellschaft

The CIVICUS Monitor classifies Portugal’s civic space as “Open”, a status it has maintained since 2018.[1] The “Open” classification indicates that the state actively enables and protects civic space, allowing citizens to form associations, protest publicly, and access information freely without legal or practical restrictions. Authorities are tolerant of criticism, promote open dialogue, and ensure that laws governing peaceful assembly and free media adhere to international standards.

Portugal has a vibrant landscape of social movements, particularly those advocating for the rights of women and immigrants, the NSG reports. In recent years, there has been a notable increase in movements and civil society organisations focused on the housing crisis. In addition, numerous collectives and associations have emerged to combat racism, reflecting a growing will in civil society to advocate for the rights of groups suffering from discrimination. Despite this increased activism, hate crimes rose by 38% in 2023 compared to the previous year, and incidents of xenophobia[2] and racism[3] became more prevalent, highlighting the ongoing challenges faced by civil society in the fight for equality and justice.

A few larger civil society associations voice the demands of the immigrant population effectively, and religious organisations that work on migration issues hold significant influence over public authorities and are acknowledged by political stakeholders. However, these organisations tend to be less assertive in their advocacy and they often underutilise their political and transformative potential. Overall, the impact of civil society on immigration issues is limited, the NSG notes.  

Associations and collectives dedicated to promoting gender equality are well organised and deeply committed to advocacy. They actively engage in various initiatives, including protests, meetings with decision-makers, and media campaigns, to further their cause. However, they often focus primarily on the issues faced by Portuguese women, and they do not have an intersectional approach. To address gender issues effectively, it is essential to consider the various social markers that intersect within individuals, including racism, xenophobia, mismatch between qualification and profession disability, etc. While the achievements of these movements benefit all women, the overall focus is on European white women, which restricts their inclusivity and effectiveness.

Funding for associations, particularly in the area of migration, has been inadequate over the past year. The FAMI (Fund for Asylum, Migration and Integration) was previously managed by the ACM (High Commission for Migration). But the ACM was abolished during the SEF’s (Foreigners and Borders Service) transition to the AIMA (Agency for Integration, Migration and Asylum), creating challenges for the FAMI. Consequently, these funds are currently not managed efficiently, and calls for project funding are overdue. This has left many associations with a very limited number of staff to operate with, further hampering their ability to support the communities they serve. It is crucial to note that the transition of SEF to AIMA was carried out without input from civil society which was not consulted or recognised as a key stakeholder in the process.[4] This oversight has resulted in the establishment of an agency that does not adequately align with the needs of the immigrant population, leading in times of crisis to the violation of the rights of hundreds of thousands of people.  

Many associations are heavily reliant on volunteers to sustain their operations in the face of funding shortages. While the commitment from individuals demonstrates remarkable resilience and has enabled civil society organisations (CSOs) to continue their important work defending people's rights, this is not a sustainable or fair solution. Professionals in the civil society sector should be adequately paid, and the current reliance on volunteers highlights a troubling necessity in a challenging environment, and it undervalues professionals. For CSOs to thrive and make a genuine impact, they need adequate funding and proper recognition for their qualified staff.

Einbindung von CSO in den zivilen Dialog

Social movements advocating for minority and marginalised groups, particularly over housing rights, have strengthened in Portugal in recent years. However, some organisations, especially those representing immigrant rights, lack militancy, weakening their dialogue with the government. This happens as they are dependent on funding from the EU, and therefore are less assertive or confrontational in their efforts, in fear of losing said funding. Limited political will to engage with civil society organisations further hinders progress in addressing the needs of minority and marginalised communities.

Portugal’s Migration Action Plan, which was created in June 2024 without consultation with civil society, is particularly disconnected from the realities faced by immigrants, and it could potentially exacerbate their vulnerabilities.[5] This plan amended immigration law by removing the possibility of regularisation through employment for an immigrant not already holding a visa. The change was implemented by decree law and lacked an adaptive period, raising concerns about its constitutionality. This abrupt alteration, which took effect within approximately 12 hours, undermined the expectation of rights and legal security for hundreds of thousands of individuals who had structured their lives around the existing law. The Action Plan has led to significant setbacks, which will likely lead to reduced access to social rights. If associations working directly with immigrants had been consulted, the plan might have been more effective and garnered less criticism from the beneficiaries who felt that their needs and rights were disregarded, according to the NSG.  Civil society can contribute significantly to an understanding of intersectionality, which is often overlooked in the formulation of public policies, including the Migration Action Plan. This programme treats the immigrant population as a "uniform mass" and fails to acknowledge its diversity, the NSG reports. But it is crucial that measures for marginalised groups are targeted to their needs. In fact, each immigrant’s country of origin affects the type of inclusion measures that are needed, such as Portuguese language courses or a minimum of political awareness training.

Another programme implemented without consulting relevant civil society organisations was Mais Habitação, the programme that addresses Portugal’s ongoing housing crisis.  Despite its positive provisions highlighted above in this report, the measures proposed could have been closer to the needs of the population if CSOs had been consulted. Overall, there is a pressing need to strengthen the dialogue between civil society and public authorities and for the authorities to recognise civil society as a key stakeholder in the development, implementation, and evaluation of public policies.

[1] CIVICUS (2024) Portugal: https://monitor.civicus.org/country/portugal/

[2] Gian Amato (2023), Discrimination against Brazilians hits record high in Portugal:   
Portugal Resident / Natasha Donn (2024), Hate Crimes in Portugal increase by 38% in 2023: https://www.portugalresident.com/hate-crimes-in-portugal-increase-by-38-in-2023/ https://oglobo.globo.com/blogs/portugal-giro/post/2023/03/discriminacao-contra-brasileiros-bate-recorde-em-portugal.ghtml  
Portugal Resident / Natasha Donn (2024), Hate Crimes in Portugal increase by 38% in 2023: https://www.portugalresident.com/hate-crimes-in-portugal-increase-by-38-in-2023/

[3] Público (2024), Hate crimes in Portugal rose 38% in 2023: https://www.publico.pt/2024/02/09/sociedade/noticia/crimes-odio-portugal-subiram-38-2023-2079931

[4] Ana Paula Costa / Público (2023), From SEF to AIMA: how to not make a transition: https://www.publico.pt/2024/04/28/opiniao/opiniao/sef-aima-nao-transicao-2088462

[5] Provedoria de Justiça (2023), Monitoring the Activity and the Process of Extinction of the Aliens and Borders Service: https://www.provedor-jus.pt/documentos/Relat%C3%B3rio%20SEF072023.pdf

Decent green jobs

Portugal’s Green Skills & Jobs programme[1] created under the umbrella of the Portuguese 2030 Energy and Climate Plan offers short- and medium-term training courses in the environment and energy fields to prevent the risk of unemployment, promote job retention and encourage the creation of new jobs in the context of accelerating the country’s energy transition and efficiency.

 The Green skills & Jobs programme is aimed at employees of enterprises directly or indirectly affected by increased energy costs and the unemployed from 18 years old. Priority is given to workers in the energy transformation processes of enterprises; at risk of unemployment or in a situation of underemployment; underrepresented gender in the profession; unemployed people who have not completed compulsory school education or have to carry out processes of recognition, validation and certification of competences (RVCC) at secondary level. 

Training projects and requalification of people may address some of the following topics: energy efficiency, renewable energy, water efficiency, sustainable mobility and circular economy.[2]

The NSG highlights the challenges in providing a more detailed analysis on decent green jobs in Portugal due to the persistent lack of accessible official information, as previously noted.

[1] CEDEFOP (2023), Portugal: Green Skills & Jobs programme: https://www.cedefop.europa.eu/en/news/portugal-green-skills-jobs-programme

[2] IEFP Online (2023), Programa Trabalhos e Competências Verdes / Green Skills and Jobs: https://www.iefp.pt/programa-trabalhos-competencias-verdes-green-skills-jobs