Author
An amendment to the Asylum Act enacted in 2022, determines that asylum applicants have the right to work from the moment of the application for international protection.[1] Furthermore, asylum applicants are entitled to benefit from support measures and programmes in the area of employment and vocational training under specific conditions to be determined by the competent Ministries.[2]
There are no limitations attached to the right of asylum applicants to employment such as labour market tests or prioritisation of nationals and legally resident third-country nationals. The issuance and renewal of certificates of asylum applications and provisional residence permits by AIMA, which clearly state the right to employment,[3] are free of charge.[4] The only restriction on employment enshrined in the law consists in limiting access to certain categories of the public sector for all third-country nationals.[5]
Asylum applicants benefit from the same conditions of employment as nationals, including regarding salaries and working hours.[6] The law provides, however, for specific formalities in the case of employment contracts of third-country nationals such as the need for a written contract and its (online) registration with the Authority for Labour Conditions (Autoridade para as Condições do Trabalho, ACT).[7]
With the exception of the submission of beneficiaries of international protection to the same conditions applicable to Portuguese nationals,[8] there are no specific rules regarding the recognition of diplomas and academic qualifications in the Asylum Act. The general rules for the recognition of foreign qualifications at primary, lower, and upper secondary levels include conditions that are particularly challenging for asylum applicants and beneficiaries of international protection (see Access to Education).
According to the Employment and Vocational Training Institute (Instituto do Emprego e Formação Profissional, IEFP), the 2022 amendment to the Asylum Act granting asylum applicants the right to work from the moment of application is viewed positively, as it reduces periods of forced inactivity, promotes dignity and facilitates social and economic inclusion, particularly for those in situations of heightened vulnerability.
There are no statistics available on the number of asylum applicants in employment at the end of 2025.
Asylum applicants can register as ‘job applicants’ with IEFP. As such they are able to search for jobs and benefit from vocational training and assistance. Such registration is usually smooth in practice, but throughout 2025 CPR observed some instances where the services were not aware of the documents issued by the asylum authorities to asylum applicants. These instances were solved after intervention by the organisation. According to IEFP, at the end of 2025, 626 asylum applicants and beneficiaries[9] were registered with IEFP as job applicants, corresponding to 0.08% of the total number of registrants, including national citizens.
In CPR’s experience, asylum applicants and beneficiaries of international protection face many challenges in securing employment, such as:
- Poor language skills and communication difficulties;
- Professional skills that are misaligned with the needs of employers;
- Difficulties in obtaining recognition of diplomas (particularly relevant for regulated professions);
- Lack of or difficulties in obtaining a social security identification number (Número de Identificação da Segurança Social, NISS) or fiscal identification (Número de Indentificação Fiscal, NIF);
- Difficulties in opening bank accounts, in particular due to the requirement to present documents such as a residence permit;
- Reluctance by employers to hire asylum applicants (namely due to lack of knowledge regarding their legal status and/or limited validity of documents issued during the asylum procedure);
- Lack of support network;
- Limited knowledge about the labour market and cultural norms;
- Difficulties in accessing certified training due to lack of proof of prior qualifications;
- Difficulties in exchanging a foreign driving licence for a national one.
Such challenges have also been reported by Associação VITAE, Crescer, IEFP and SCML.[10] According to SCML, single-parent families face particular difficulties in entering the labour market, owing to the absence of a support network and the constraints of working hours. According to IEFP, the lack of stable housing is also an obstacle.
According to CPR, SCML, Crescer and Associação VITAE, the precarious nature of most available employment exposes applicants to a heightened risk of exploitation and fraud. SCML further notes that such precarity results in alternating periods of employment and unemployment.
In recent years, CPR has noted difficulties in the issuing of fiscal numbers, despite the fact that the Fiscal authority drafted clear guidance as to the fact that the certificate of the asylum application suffices for this to be done.[11] In 2025, these obstacles seem to have been overcome, with only the challenges to accessing services (also experienced by nationals) remaining, notably access to tailored-support in the case of people with vulnerabilities or disabilities as it is conditional and time-consuming.
Nevertheless, challenges persist regarding registration with the Social Security,[12] despite efforts from the authorities to simplify and digitalise processes through an online platform. According to ISS, the assignment of a social security number requires a connection to the Social Security system.[13] While employers may enter into employment contracts with third-country nationals without a NISS, an employment contract is required for the NISS to be assigned. Often the application is submitted online with all the required documentation and is rejected on improper grounds.[14] According to CPR’s observation, this may be related to inconsistent criteria used between officials in the analysis. A further difficulty identified is the lack of communication as applicants frequently receive no notification (by email or post) that a social security number has been issued. In CPR’s view, the digitalisation of processes has in practice created additional barriers rather than facilitating access.
In 2025, within the context of CPR’s integration-related support, asylum applicants were able to find jobs in areas such as cleaning, costumer services, civil construction, logistics, and agriculture. With the exception of specific functions (such as electrician jobs), low salaries were generally observed.
A study focusing on the situation of unaccompanied asylum-seeking children and ageing out in Portugal published in 2021 revealed that, out of those consulted, 34.3% were working, mostly in civil construction. Only 65.2% of those questioned deemed the salaries as fair compensation for the work performed.[15] The analysis conducted concluded that the participants are mostly engaged in unspecialised and likely precarious jobs.[16]
Within the context of a specific project aiming to support the integration of unaccompanied children over 15 years old in the job market, internships and training opportunities, CPR observed additional challenges in the integration of asylum applicants in specific sectors such as sports, particularly by not being able to compete due to the lack of documentation.[17] The project also highlighted the impacts of the challenges mentioned above in this specific group.
According to Aldeias de Crianças SOS, socioeconomic fragility and the absence of documentation frequently expose unaccompanied asylum-seeking children to precarious working conditions.
CPR’s Integration department continued to observe persistent challenges with regard to access to recognition/validation/certification of professional and academic competencies of asylum applicants and beneficiaries.[18] Notably:
- Lack of original diplomas and certificates (for instance, IEFP does not accept personal statements regarding qualifications, simply registering these persons as literate job applicants);
- Difficulties in obtaining certified translations of existing documents;
- Long administrative procedures for recognition/validation/certification, and lack of regular communication flows;
- Lack of knowledge of Portuguese language.
While there are no specific programmes targeting applicants for and beneficiaries of international protection, asylum applicants and beneficiaries of international protection are included among the target population of some of IEFP’s employability support measures.
According to IEFP, of particular relevance is the Programa INTEGRAR,[19] which, whilst not exclusively for asylum applicants, is open to third-country nationals registered with IEFP. The programme promotes labour market integration through individualised support, personal employment plans, and training in social, linguistic and professional skills. According to IEFP, its goal is to address barriers such as language, recognition of qualifications and cultural obstacles. At the end of 2025, no studies were available on its impact, nor does CPR have any information on the matter.
According to CPR’s experience, the main challenge faced by applicants/beneficiaries of international protection within this context is that the amount paid to interns by IEFP’s programmes depends on their level of qualifications. As many applicants/beneficiaries of international protection cannot prove their qualifications, most of them are only eligible to the lowest tier of grant (in 2025, € 679.25).[20] Furthermore, sometimes, asylum applicants are not allowed to register to these programmes, on the grounds of not yet being beneficiaries of international protection.
CPR’s Integration department offers individual assistance that covers job search techniques, recognition procedures, search and referrals to vocational training and volunteering opportunities. Other NGOs, such as JRS and Associação VITAE, also provide employment assistance to asylum applicants and develop projects in this field.
Local Support Centres for the Integration of Migrants (Centros Locais de Apoio à Integração de Migrantes, CLAIM) continue to operate through MoUs between AIMA and civil society organisations or municipalities. According to AIMA, since mid-2024, CLAIMs have been encouraged to expand their scope beyond social integration to also include support in administrative and regularisation processes, operating under three models: the conventional CLAIM, focused on social integration and providing information on employment, training and recognition of qualifications; CLAIM 2G, which extends services to include regularisation procedures; and a hybrid model combining social integration with documentary preparation for regularisation. There is no up-to-date list of which CLAIMs are in operation, or contact details and opening hours.[21]
The National Plan to Combat Racism and Discrimination 2021-2025 provides for the implementation of training courses with internships in the area of tourism to promote the integration of refugees and migrants in the labour market.[22] As part of the ‘Accelerate the Economy’ initiative, the ‘Integrate for Tourism’ programme was launched in partnership between the National Tourism Authority, the Network of Hotel and Tourism Schools, AIMA and the Portuguese Tourism Confederation,[23] aimed at qualifying and professionally integrating migrants and beneficiaries of international protection in the tourism sector. Of the applications submitted for the first edition in 2025, 915 were validated, though a high number of withdrawals was noted, with 655 trainees ultimately completing the programme. A second edition was launched in March 2026,[24] with an extended internship period of three months and the addition of IEFP as a new partner, strengthening financial support for participants. As observed by CPR, publicity for this initiative is very limited.
Portuguese Language training
The legal framework for public Portuguese language was amended in 2022, expanding access to persons over 16 years old (previously, it only covered persons over 18), and to applicants for temporary protection.[25] Access by asylum applicants was already provided for.
According to available information asylum applicants are able to register with IEFP to access to Portuguese language training.
Among the challenges traditionally encountered in this area are the lack of training tailored to persons with low levels of education/illiteracy/poor knowledge of the Latin alphabet, the limited availability of alphabetic training for foreigners, as well as limited availability of training at B1 and B2 levels due to group size requirements. This was particularly challenging in certain parts of the country with lower numbers of eligible learners.
In 2025, 1,898 applicants for and beneficiaries of international protection were enrolled in Portuguese language courses promoted by IEFP, representing approximately 8.7% of the total 21,867 participants.
Since 2022, CPR observed an improvement in the access of asylum applicants to ‘Portuguese as a host language’ courses, the public Portuguese language training scheme, with an increase of the number of entities that may organise relevant courses.[26]
In 2025, CPR provided 1,206 hours of Portuguese language training course and promoted 13 sociocultural activities, which totalled 312 asylum applicants. Applicants took part in both literacy and language initiation activities at the same time, as per CPR’s practice. It is also worth noting that 115 trainees, representing approximately 37% of the total, presented some form of vulnerability. CPR also offered online classes to ensure access for vulnerable and/or geographically dispersed applicants.
Vocational training
The low level of language skills associated with the lack of diplomas and/or potentially challenging recognition procedures, render access to vocational training offered by IEFP and its partners within the public system challenging to most asylum applicants and beneficiaries of international protection. According to CPR’s observations, vocational training in the private sector is generally unaffordable. A further barrier identified is that most training centres require trainees to hold a bank account to receive the training grant. Where applicants do not hold one, access is only possible if they waive their entitlement to such financial support.
As of 2018 asylum applicants admitted to the regular procedure and beneficiaries of international protection that are unable to present the relevant diplomas/certificates or whose documents and academic qualifications have not been recognised in the Portuguese educational system can be registered by IEFP as ‘literate users’ in the SIGO platform.[27] Other than Portuguese language training courses, such registration only provides access to: (a) modular training[28] at basic education level; (b) training in basic skills (reading, writing, calculation and information and communication technologies) in preparation for EFA Courses; and (c) Education and Training Courses for Adults (Cursos de Educação e Formação para Adultos, EFA) with equivalence to the 4th or 6th year of basic education or a professional certificate.[29] Neither modular training nor training in basic skills entail an academic certification.
CPR is working closely with the Vocational Training Centre for the Construction and Public Works Industry (CICCOPN), organising training courses at CPR’s premises. Trainees have access to a training grant, though difficulties arise from the need to hold a bank account. A further constraint arises from displacements resulting from the applicable reception responsibility framework. The private sector has also been playing an increasingly important role, with CPR actively developing partnerships to support the labour market integration of asylum applicants. Notable examples include a collaboration with A Padaria Portuguesa, which offers paid internship programmes including for unaccompanied asylum-seeking children from the age of 16, and a partnership with Randstad, which provides mentoring programmes and supports CPR in identifying employment opportunities for specific professional profiles.
CPR is also working closely with SCML[30] through its training centre, which has been developing modular training courses that enable applicants and beneficiaries of international protection to participate. Currently not all courses are certified, but they have a strong practical component made possible by the conditions of the training centre. Notably, in addition to literacy classes, training courses are offered to those who are unable to present a qualification certificate, requiring only the presentation of a document proving their legal status. The courses are in the areas of carpentry, housekeeping, cooking, pastry and restaurant, beauty care, hairdressing, geriatrics, and teaching assistant. Notably, SCML has adopted a flexible payment policy, allowing trainees without a bank account to receive their training grant in cash through a petty cash fund.
[1] Articles 54(1), as amended by Act n.18/2022, of 25 August. Before this change, asylum applicants were entitled to access the labour market and to benefit from support measures and programmes in the area of employment and vocational training following admission to the regular procedure and issuance of a provisional residence permit.
[2] Article 55 Asylum Act.
[3] Ministerial Order 597/2015.
[4] Article 84 Asylum Act.
[5] Article 15(2) Constitution and Article 17(1)(a) and (2) Act 35/2014.
[6] Article 4 Labour Code.
[7] Article 5 Labour Code.
[8] Article 70(3) Asylum Act.
[9] According to IEFP, of the 626 asylum applicants and beneficiaries registered, 212 held a certificate of asylum application and 414 held a residence permit, not distinguishing between provisional residence permits (held by asylum applicants) and residence permits (held by beneficiaries of international protection).
[10] SCML further reported that, in 2025, 30 of the asylum applicants assisted by the organisation were able to become autonomous due to their integration on the job market.
[11] With some branches requiring a passport for registration, for instance. This has also been confirmed by Associação VITAE to the 2025 AIDA Report.
[12] This has also been confirmed by Associação VITAE to the 2025 AIDA Report.
[13] Article 99 Act 4/2007, of 16 January 2007.
[14] Failure to present an employment contract, declaration of application for asylum and/or residence permit, declaration on honour as to the reason for requesting a social security number, for instance.
[15] Sandra Roberto, Carla Moleiro, ed. Observatório das Migrações, De menor a maior: acolhimento e autonomia de vida em menores não acompanhados, April 2021, p.46, available here.
[16] Ibid, 64.
[17] For more information see here.
[18] This has also been confirmed by Associação VITAE to the 2025 AIDA Report.
[19] Order 218/2024/1, of 23 September 2024, available here.
[21] See AIMA’s factsheet on CLAIMs, February 2025, available here.
[22] National Plan to Combat Racism and Discrimination 2021-2025, available here, 74-75.
[23] Regulation 1469-A/2024, of 20 December 2024, available here.
[24] See here (in Portuguese).
[25] Ministerial Order no.183/2020, of 5 August 2020, amended by Ministerial Order no.184/2022, of 16 February 2022, available here. These courses are free of charge for participants and may be funded by EU funds (article 10).
[26] Available here, A guide by IEFP on the organisation of trainings under the new framework is available here.
[27] Integrated Information and Management System for Education and Training Courses (Sistema Integrado de Informação e Gestāo da Oferta Educativa e Formativa, SIGO) which contains a national catalogue of education and training courses offered by training institutions at national level and the certification of individual trainees: DGEEC, ‘Sobre o Sistema Integrado de Informação e Gestão da Oferta Educativa e Formativa’, 3 July 2017, available in Portuguese here.
[28] Modular training aims to refresh and improve the practical and theoretical knowledge of adults and improve their educational and vocational training levels. For more information see IEFP, Fomação Modular, available in Portuguese here.
[29] IEFP, Cursos de Educação e Formação para Adultos (Cursos EFA), available in Portuguese here.
[30] According to SCML, the range of training courses available to asylum applicants expanded in 2025.