Immigration in Portugal:

recent trends & policy

debates

MetroMed, Milan, 11 December 2003

Maria Lucinda Fonseca

& Meghann Ormond

Centro de Estudos Geográficos, Univ. de Lisboa

With support from FLAD Luso-American Foundation

An overview of immigration in

Portugal - I Like other Southern European countries, Portugal

has its own strong tradition of emigration;

immigration, and social and political responses to it,

are comparably recent

Portugal only became a migration destination in the

1970s, with the fall of the dictatorship & the

independence of its former African colonies (Angola,

Mozambique, Guinea-Bissau, Cape Verde & São

Tomé e Príncipe) that also brought back hundreds of

thousands of Portuguese who were living in the

colonies (retornados)

An overview of immigration in

Portugal - II Like other Southern European countries, Portugal

has its own strong tradition of emigration;

immigration, and social and political responses to it,

are comparably recent

Portugal only became a migration destination in the

1970s, with the fall of the dictatorship & the

independence of its former African colonies (Angola,

Mozambique, Guinea-Bissau, Cape Verde & São

Tomé e Príncipe) that also brought back hundreds of

thousands of Portuguese who were living in the

colonies (retornados)

Most immigrants & retornados ended up

settling in the Lisbon Metro Area, a

trend that continues today for most

immigrants (except EU citizens & those

involved in the agricultural sector), &

other urban areas throughout the

country (though to a lesser extent)

Evolution of legally resident foreign

population in Portugal, by continent of

origin, 1980-99

1980 81 82 83 84 85 86 87 88 89 90 91 92 93 94* 95 96 97 98 1999

Years

0

50

100

150

200Thousands

Total Africa North America South America Asia Europe

Source: Fonseca et al., 2002

Documented

foreigners

with a

residence

permit, by

main

countries of

nationality,

2000

LMA as a %

Origin Number % Number % of the country

Total 208198 100 134485 100 64,6

Europe 61653 29,6 27616 20,5 44,8

EU 56783 27,3 25164 18,7 44,3

Africa 99107 47,6 82626 61,4 83,4

Angola 20468 9,8 16659 12,4 81,4

Cape verde 47216 22,7 41335 30,7 87,5

Guinea-Bissau 16006 7,7 12071 9 75,4

Mozambique 4660 2,2 4042 3 86,7

S. Tomé 5488 2,6 4987 3,7 90,9

North America 10259 4,9 5260 3,9 51,3

Canada 2003 1 604 0,4 30,2

USA 8060 3,9 4518 3,4 56,1

Central &

South

America 27638 13,3 12227 9,1 44,2

Brazil 22411 10,8 10841 8,1 48,4

Asia 8734 4,2 6317 4,7 72,3

India 1296 0,6 1094 0,8 84,4

China 3278 1,6 2044 1,5 62,4

Oceania 529 0,3 244 0,2 46,1

Stateless

people 273 0,1 195 0,1 71,4

Unknown 5 0 0 0 0,0

Lisbon Metro Area

(LMA)

Portugal

Source: Fonseca and Esteves, 2002, pp. 258

The new geography of

immigration to Portugal

Since the late 1990s, the geography of immigration to Portugal has undergone truly profound changes, from that which has to do with recruitment to the geographic patterns of immigrant settlement in Portugal

Numerical change in documented

foreigners, by main countries of nationality,

1997-2001

A B C D D-A

Nationality Residence

permit

Residence

permit

Permanent

residence

permit

Residence &

Permanent

residence

permits

%

change

1997 2001 2001 Total (%)

Total 175,263 223,976 126,901 350,877 100.2

EU 46,043 61,732 -- 61,732 34.1

Non-EU 129,22 162,244 126,901 289,145 123.8

PALOP 77,6 101,379 15,624 117,003 50.8

Brazil 19,99 23,439 23,713 47,152 135.9

Other countries 31,63 37,426 87,564 12,499 295.2

PALOP = Portuguese-speaking African countries

Source: Fonseca, 2003 (forthcoming)

New sending countries

Diversification of sending countries

Development of a migratory flow from

Eastern Europe, namely from:

• Ukraine

• Moldova

• Romania

• Russia

Main nationalities of immigrants with

a residence permit in Portugal, 2001

0 10000 20000 30000 40000 50000 60000

Cape Verde

Brazil

Angola

Guinea-Bissau

UK

Spain

Germany

USA

France

S.Tomé and Prince

Number of immigrants (residence permit)

Total immigrants:223,976 / Top 10 nationalities:175,696 (78.4%)

Main nationalities of immigrants with a

permanence permit in Portugal,

2001 & 2002

Total immigrants: 174,558 / Top 15 nationalities: 163,242 (93.5%)

Source: Fonseca, 2003 (forthcoming)

0 10000 20000 30000 40000 50000 60000 70000

UkraineBrazil

MoldovaRomania

Cape VerdeAngolaRussia

G.-BissauChinaIndia

PakistanBulgariaS. ToméMoroccoLithuania

New settlement patterns in

Portugal

Despite the fact that the majority resides in the Lisbon Metropolitan Area, it is possible to find them throughout the country, spreading themselves out in relationship to the work opportunities available in each region.

Total Eastern Europe* PALOP** Brazil

Number % Number % Number % Number %

R. Norte 24,005 16.9 15,016 20.2 873 5.1 3024 11.7

R. Centro 19,468 13.7 13,804 18.6 882 5.1 1929 7.4

R. Lisboa V. Tejo 71,254 50.3 28,434 38.2 13,642 79.2 17,172 66.2

R. Alentejo 8056 5.7 4332 5.8 628 3.6 1364 5.3

R. Algarve 18,853 13.3 12,824 17.2 1189 6.9 2451 9.4

Total 141,636 100.0 74,410 100.0 17,214 100.0 25,940 100.0

*Only the four main nationalities are included (Ukraine, Moldova, Romania and Russia)

** Includes only the 3 main nationalities: Cape Verde, Angola and Guinea-Bissau)

Source: Fonseca and Malheiros, 2003

Foreign population with registered work contracts valid for

receiving a permanence permit, by region of origin and region

(NUT II) of settlement in mainland Portugal (31/12/2001)

Residence permits (Stock), 2001 (%)

Permanence permits, 2001 (%)

Source: Fonseca, 2003 (forthcoming)

Settlement patterns of documented immigrants living in Portugal: Stock (residence permits) and permanence permits, 31/12/2001

2001 Distribution of EU

citizens living in

Portugal

Highest concentrations

in the Lisbon Metro

Area & Algarve Region

Retirees settling in the

Algarve from the UK,

Germany & the

Netherlands

2001 Distribution of

PALOP citizens living in

Portugal

Highest concentration in

the Lisbon Metro Area;

general settlement in urban

areas

Arrival began with

independence of the former

colonies in the 1970s

Employed in construction &

office/domestic cleaning

PALOP = Portuguese-speaking African countries

2001 Distribution of

Brazilian citizens

living in Portugal

Highest concentration in the Lisbon Metro Area

Arrival began in the 1970s, with the fall of the dictatorship in PT

Employed in construction & the service sector

2001 Distribution of

(Non-EU) European

citizens living in

Portugal

Highest concentrations in the Lisbon Metro Area & the Algarve Region, but also spread out in rural areas

Arrival began in the late 1990s, with the initiation of large-scale construction projects

Employed in construction & the agricultural sector

Professional level

Eastern European immigrants, although they have relatively high educational and professional qualifications, they are employed in low-paying and socially-undervalued jobs, such as construction (men) and industrial cleaning and domestic work (women).

However, there is a significant percentage of Eastern Europeans working in agriculture, especially in the Alentejo, Ribatejo and Oeste Regions, as well as in some types of more work-intensive industries in the Northern Region.

CAE Ukraine Brazil Moldova Romania Cape Verde Angola Russia

Agriculture and Fishery 5.4 1.6 5.0 6.0 1.5 1.1 4.3 Extractive Industry 1.5 0.2 0.5 0.5 0.2 0.0 0.6

Manufacturing Industry 24.2 7.8 13.3 8.8 4.2 4.7 28.1 Water, Gas and Electricity 0.0 0.0 0.1 0.0 0.0 0.0 0.1

Construction 41.3 25.5 54.1 53.4 43.4 33.7 32.3 Commerce 7.0 12.1 5.8 5.5 6.0 8.1 7.3

Restaurants and Hotels 6.0 22.1 6.0 6.6 9.2 14.1 9.6 Transports and Communications 1.5 2.0 2.4 1.2 0.6 0.6 1.4

Services 13.1 28.6 12.8 17.9 34.9 37.7 16.3 Total 100.0 100.0 100.0 100.0 100.0 100.0 100.0

Source: Portuguese Labour Inspecion (IGT) Report (January 10th – December 31st, 2001)

Work contracts made with immigrants holding

permanence permits, by employment sector and

countries of origin (%)

Policy debates

The recent massive increase of

immigration to Portugal, especially the

new migratory wave coming from

Eastern Europe, has made waves in the

media and has prompted a great

national debate about immigration

policy.

The terms of the policy

debates

The new “immigration law”, published on 25

February 2003, brings some new issues into

the immigration debate.

The coalition government of Social

Democrats and Christian-Democrats that

took office in April 2002 has drawn a more

complex and elaborate law based on three

arguments.

1.The promotion of legal immigration according to the country’s labour market needs;

2.The effective or real integration of immigrants;

3.The fight against illegal immigration.

The terms of the policy

debates - II

Management of migration

The Government establishes a maximum annual limit for entries of third country nationals onto the national territory, and workers coming to Portugal must hold a labour visa or a residence permit.

The term “quota” is not mentioned in the law, but the quota principle is used. A new kind of work visa, for scientific and research activities, was created with the goal of keeping scientists and highly skilled people in Portugal.

Most of the institutions which opinion is taken into account for the elaboration of the report on labour import are closely related to the labour market rather than to the immigrant field.

Immigrant associations and NGOs are only represented by the ACIME, and in its new and more complex structure, through the Consultative Council for Immigration Issues (COCAI).

Management of migration - II

SEF now has more power and less bureaucratic

procedures to follow when removing

undocumented foreigners from the country.

The reference to the geographical unit “distritos”

as hosting areas is also remarkable because there

had never been a reference to the settlement

regions – until now, immigrants were absolutely

free to choose their areas of residence.

Management of migration - III

Integration Policy: Practices & Partnerships Education & Health

Identification of

specific measures

directed to

immigrants/

foreigners

Identification of

partnerships

(partners)

Geographic

level of

intervention

Preliminary

assessment

Education YES. Entreculturas

Project; Intercultural

mediators w orking in

schools

YES. Ministry of

Education, schools,

municipalities, NGOs

National--

conducted at

local level,

particularly in

LMA

Positive

Health Basically NO. There is

only a specif ic initiative

for asylum seekers,

some health information

campaigns and check-

ups in immigrants'

neighbourhoods

NO. Some local

associations have

developed initiatives

in some immigrants'

neighbourhoods

National and

LMA

municipalities

???

LMA = Lisbon Metropolitan Area Source: Fonseca et al., 2002

Integration Policy: Practices & Partnerships Social Assistance & Culture

Identification of

specific measures

directed to

immigrants/

foreigners

Identification of

partnerships

(partners)

Geographic

level of

intervention

Preliminary

assessment

Social

assistance

YES. Training

programmes aimed

specif ically at ethnic

minorities or immigrants

YES. Ministry of Internal

Affairs (Civil Governor

of Lisbon - f inancial

contribution), Social

Security, Portuguese

Council for Refugees,

NGOs, municipalities. EU

funds support

Programme INTEGRAR

Mainly local ???

Culture YES. Ethnic festivals,

support to cultural

associations - music

and dance w ith African

or Afro-South

American influences

YES. Municipalities,

immigrants'

associations, ACIME

Local Positive

ACIME = High Commissariat on Immigration & Ethnic Minorities

Integration Policy: Practices & Partnerships Information Society & Political Participation

Identification of

specific measures

directed to

immigrants/

foreigners

Identification of

partnerships

(partners)

Geographic

level of

intervention

Preliminary

assessment

Information

society

YES. Digital Cities

Programme, Project

Pelas Minorias

ACIME, IEFP, LMA

municipalities, Ministry of

Science and Technology

Local -

w orldw ide

diffusion due

to the use of

technology

Positive

Political

participation

NO. The extension of

voting rights in local

elections depends on

reciprocality for

Portuguese citizens

NO. Immigrants'

associations, NGOs,

some political parties

and municipal authorities

have campaigned for

the registration of

foreigners in the

electoral census

Local Positive (in

principle), still

very limited

Integration Policy: Practices & Partnerships Housing & Employment

Identification of

specific measures

directed to

immigrants/

foreigners

Identification of

partnerships (partners)

Geographic

level of

intervention

Preliminary

assessment

Housing NO. YES (general housing

policy). Contracts betw een

the municipalities and the

central government

(f inancial contribution).

Limited participation of some

NGOs

Regional (2

metropolitan

areas),

conducted locally

(municipalities)

Positive in terms of

improving housing

conditions. Less

effective in terms of

contributing to the

reduction of social

problems of the

neighbourhoods

Employment YES (but limited).

Agreement betw een

ACIME and IEFP. Training

of cultural mediators

(Programme Education-

Employment). Training

programmes developed

by some immigrants'

associations

YES. ACIME, IEFP,

immigrants' associations,

(exceptionally) municipalities

Regional Positive

Fonseca, Maria Lucinda (2003, forthcoming) - " Dinâmicas de Integração dos imigrantes:

estratégias e protagonistas."

Fonseca, Maria Lucinda; Caldeira, Maria José; Esteves, Alina (2002) - "New Forms

of Migration into the European South: Challenges for Citizenship and Governance. The

Portuguese Case", International Journal of Population Geography, vol. 8 (2), pp. 135-152.

Fonseca, Maria Lucinda; Esteves, Alina (2002) - “Migration and New Religion Townscapes

in Lisbon,“ in Fonseca et al., Immigration and Place in Mediterranean Metropolises, Lisbon,

Luso-American Foundation, pp. 255-289.

Fonseca, Maria Lucinda; Malheiros, Jorge; Esteves, Alina; Caldeira, Maria José (2002) -

Immigrants in Lisbon: Routes of integration, Lisbon, Centro de Estudos Geográficos,

Estudos para o Planeamento Regional e Urbano, nº 56.

Fonseca, Maria Lucinda; Malheiros, J. M. (2003) - "«Nouvelle» Immigration, Marché du

Travail et Competitivité des Régions Portugaises", Géographie, Économie, Societé - Revue

Scientifique Internationale, vol. 4, nº 2.

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