Practical
examples – Asylum seekers
Up and beyond – aim high!!
"Why create a problem if there is none? Why not let asylum
seekers who want to work in the first place work? Access to work and
professional training are very important means that give asylum seekers autonomy
to start their new lives here in Portugal. Especially working is a great
opportunity for newly arrived in our country to integrate in our society and be
self-sufficient instead of relying on support from the government. Allowing
asylum seekers to work is therefore also a beneficial for the government as
costs in terms of economic support decreases"
Dr. João Labescat, Head Office of the Secretary of Estate of the Internal Affairs Ministry, says with determination.
In Portugal, asylum seekers are allowed to start working as soon as they have
received their provisional residence permit, which also gives them access to
education and vocational training. If asylum seekers arrive at the airport, they
are given this permit directly when they lodge their asylum application and a
preliminary check has been made that they have the right to apply for asylum.
For asylum seekers arriving at other borders, it generally takes 20 days to
receive the permit. Such prompt access to work, education and vocational
training is not the standard across the EU. The Reception Directive on minimum
standards[1] establishes that all Member States shall provide in
their national legislation that at the latest one year after having lodged their
application, asylum seekers have right to access the labour market. The time
when asylum seekers can start working therefore varies significantly between the
25 Member States. Portugal is amongst the Member States with the shortest
waiting time before asylum seekers are allowed to start working.
In order for asylum seekers to be able to take on a job, language competences
and relevant vocational training is, however, directly crucial. But if one comes
from a completely different culture and education system, it might not be very
straightforward to realise what competences are valuable in the new society and
what additional skills one needs to start working. The Portuguese EQUAL
partnership VIAAS (Vias de Interculturalidade na Area do Asilo) has created a
number of activities in order to facilitate the access of asylum seekers to the
labour market and integrate smoothly in the Portuguese society, including the
development of a method to validate the skills of asylum seekers, provision of
vocational training, language courses, cultural expression and art ateliers.
The partnership is coordinated by the Portuguese Refugee Council (PRC). "The
PRC has been working with the rights of asylum seekers since 1991" the director
of PRC, Dr. Maria Teresa Tito de Morais Mendes explains. "Not all of the other
organisations in our partnership have worked extensively with this group of
people before, but contribute with specific knowledge from developing relevant
practices targeted at other groups with specific needs. Therefore, not only has
the partnership allowed us to create innovative instruments specifically
developed in view of asylum seekers' situation, but also sensitise other
organisations about what asylum seekers and their rights in Portugal are".
According to Dr. Maria Teresa Tito de Morais Mendes sensitisation of other
organisations, however, goes beyond merely the partners involved in the scope of
VIAAS. Even though asylum seekers receive their provisional residence permit
within quite a short time delay, many employers are unaware of the meaning of
this permit compared to the more familiar visa and are sceptical towards hiring
asylum seekers. Therefore, awareness raising in general, both of employers and
the local community, is an important objective of the partnership.
EQUAL reception in the centre of the community – not only for the benefit of
asylum seekers
"In the reception phase, it is very important for asylum seekers to not only
receive judicial aid, but also assistance with preparing their social,
vocational and educational integration in our for them new society. Our
organisation is the first contact point for asylum seekers when they arrive in
Portugal since we run the Reception Centre here in Lisbon" Dr. Maria Teresa Tito
de Morais Mendes says. "Around 100 asylum seekers arrive each year and this
number has been rather steady in recent years. Asylum seekers who arrive in
Portugal spend their first two to three months at our Reception Centre in
Lisbon; then they have to leave their place for other newly arrived as we only
have 21 places. Or at least had 21 places – the construction of a new Reception
Centre with space for 34 asylum seekers has just been finalised" she adds
enthusiastically.
The new Reception Centre is, however, not only a place to accommodate asylum
seekers during their first months in Portugal. On the contrary: built on the
basis of one of the two interlinked strands of the EQUAL Asylum Seekers Theme,
namely the social integration of asylum seekers (the other being vocational
integration), the centre is an excellent meeting point for asylum seekers and
the local community, providing not only a new venue for hosting bands, theatre
groups etc., but also a day care centre for children where asylum seekers'
children are placed together with Portuguese children, a public garden and
sports facilities where the newly arrived get the opportunity to enjoy games
together with their peers from Portugal. Naturally, since being a Reception
Centre, the new building also has accommodation space with beds for 34 asylum
seekers, including facilities for disabled, and a canteen.
"When building this new Reception Centre, we wanted to create a place where
asylum seekers and Portuguese citizens get to meet naturally whilst enjoying
leisure activities and ensure that asylum seekers do not become isolated in the
outskirts of the city as can often be the case. We therefore queried the local
community of what facilities they thought were lacking, for example day care for
their children, and made sure that these facilities were integrated in the
drawing of the centre. We also looked at Reception Centres in other countries to
learn from innovative ideas across Europe. The EQUAL programme and the EQUAL
principles have been imperative for this initiative and we very much look
forward to the positive results this will bring about in terms of social
integration and decreased xenophobia" Dr. Maria Teresa Tito de Morais Mendes
concludes.
Theatre activities in the reception centre
In the Centre, asylum seekers will receive Portuguese language courses and
get the opportunity to participate in, for example, theatre groups. Learning
Portuguese already at very early stages in the reception process is essential
for a fast and smooth not only social, but also vocational integration in their
new society. Indeed, learning Portuguese language is integrated in all
activities that have been developed by the VIAAS EQUAL partnership. One of these
activities is an excellent example of an integrated approach that addresses both
social and vocational integration in the Portuguese society. Through the EQUAL
project, a one-year long vocational training programme has been opened up for
asylum seekers in an activity run by one of the EQUAL partners, namely the CFPSA
(Vocational Training Centre for the Alimentary Sector). This training centre,
which was started in 1984, provides vocational training both for those without
skills in the specific area and for those with some prior skills, e.g.
Portuguese citizens who already work or have worked in companies. Asylum seekers
who participate in this programme get two to three weeks pre-training to
determine the interest and aptitude of the individual.
Vocational training programmes in a variety of fields are available at the
school, and asylum seekers have so far participated in three different areas, in
which there is an evident lack of people to take on work. Interviews were
undertaken with representatives of a number of different sectors in order to
find out where there are labour market needs for new employees, and on the basis
of these interviews, it was decided to give the asylum seekers the possibility
to train to become butchers, service waiters and to carry out food controls.
"Asylum seekers is a group with specific characteristics and needs, and we
therefore adapted out training to allow them to get the best possible support to
participate in the training and succeed to get their diploma" Dr. Gracinda
Ramos, director of the CFPSA, explains. Such adaptations include, for example,
provision of Portuguese language and counselling in addition to theoretical and
practical courses in the training centre. "Also, for the recruitment of
participants, tests have been translated and we provide the possibility to take
the tests orally instead of in writing".
Maria Golemi[2] is one of four asylum seekers who participated in the first
phase of the project in which two asylum seekers were trained to become butchers
and two to become service waiters. In fluent Portuguese she explains that "For
me, this was a fantastic opportunity that I could not miss! When I started, I
only spoke a few words of Portuguese, and now, only eight months later, I not
only speak Portuguese, but have also learnt a new profession". Not only did
Maria Golemi manage to learn Portuguese in record time, though, she was also
rated the best in her class to become service waiter, and was hand-picked by a
four star hotel to do her two months internship, which is also part of the
programme. Through the participation of asylum seekers in this training
programme they both get an opportunity to learn Portuguese and a new profession.
At the same time they are on a fast track to integrate in the Portuguese society
socially, as they are included in a group with Portuguese citizens during their
training, and also get Portuguese colleagues at their work place at the time of
their internship.
Validation of competences in Portugal... and across Europe
Not all asylum seekers are, however, ready to start a vocational training
programme straight away. The director of the PRC explains that "Asylum seekers
is a group of people who often cannot make use of all professional competences
they have from their country of origin in Portugal, which is at least partly a
consequence of that many come without their professional and educational
certificates. Therefore, we started cooperating with Santa Casa, one of around
2,000 organisations in a Portuguese national network that has the right to
recognise school competences. Santa Casa has been involved in our partnership
since Round 1 of EQUAL, but not this specific part of the organisation that is
responsible for undertaking competence assessments".
"We had been working with other groups of people with special needs before
this EQUAL project" Dr. Ana Cameira, Coordinator of the Centre for the
Recognition, Validation and Certification of Competences (CRVCC) / Santa Casa da
Misericórdia de Lisboa (SCML), says. "We are indeed around 2,000 organisations
with the right to validate competences, but we work with different target groups
and each organisation has to adapt their assessments in accordance with
guidelines established by the Ministry of Education. These guidelines are based on competence assessments in four main fields: (1)
Maths for life; (2) Technical competences; (3) Language and community; and (4)
Citizenship and employability. Therefore, despite that we work with different
target groups, the result of the validation should always be the same."
The
group with special needs Santa Casa worked with before involving asylum seekers
was mainly individuals monitored by social workers employed by Santa Casa
(including those without jobs, with economic problems and otherwise socially
excluded). Common for all individuals that participated in the validation of
competences is, however, that they do not have an academic degree, but life
experiences that are also very valuable and lack successful integration in the
society. "We do more than just recognition of skills, though" Dr. Ana Cameira
explains. "When we see that an individual has a certain interest or aptitude in
a specific area, for example computers or photography, we help developing these
competences and set up an action plan on how this can become a reality in terms
of a profession. At the same time we ensure that plans agreed are in line with
labour market needs".
A group of asylum seekers participating in the activities organised by VIAAS
At the institute all individuals are assessed in all four key areas with the
assistance of a "mediator" that goes through a reference guide to validate the
skills of the participant. However, the same process is not used for all, but
adapted to individual needs. "For asylum seekers, we put the main emphasis on
the two areas language and community, and citizenship and employability"
Dr. Ana Cameira says.
"We focus on training, job and the social situation here in
Portugal so as to not remind them of traumatic experiences in their home
country. Also, we address a particular group of asylum seekers, namely those
with at least a basic level of Portuguese and who are not highly educated. Most
asylum seekers have, though, at least some basic knowledge of Portuguese from
their lessons in the Reception Centre and of course we do not expect asylum
seekers to be fluent in Portuguese. An important added value of this activity
is, in fact, the improvement of their language skills as they need to talk about
themselves in Portuguese both in individual and group sessions."
The validation of competences results in a certificate for one of three
different levels: the fourth, sixth or ninth grade. To be able to obtain a
certificate, the individual needs to have passed the criteria for a specific
level in all four main areas included in a model from the Ministry. No "normal"
written tests are, though, undertaken. "We assess the participant's competences
by undertaking different activities. For example, if an individual is interested
in photography, we ask him or her to bring a few photos to the institute and
analyse them together with the mediator" Dr. Ana Cameira says. "The mediator
then assesses the individual's level on the basis of language used and the
content of the analysis by the participant". Work is undertaken both in the form
of individual sessions with a mediator, and in groups in case of training needs.
Normally around 46 hours of sessions with a mediator during a time period of six
months are necessary to go through the competence analysis process, whereas for
some it can take up to two years. At the end, an orientation plan will be
agreed, according to the individual's needs and interest. Such an orientation
plan can include starting training or education needed for a specific job or
directly start looking for a job. In case the individual will start looking for
a job, they get assistance creating a CV and writing a cover letter. "I really
wanted to get my competences validated" Abdul Dirie [3] says. He continues:
"My
dream is to become an electrician but I do not have the necessary education and
cannot start it without getting my competences validated. Therefore, having the
chance to participate in this programme means the world to me".
The importance and relevance of validating the skills of asylum seekers has
not only been recognised in Portugal, but also by other Asylum Seekers EQUAL
partnerships across Europe. The Portuguese partnership VIAAS is part of the
transnational partnership PASSI (Prepare Asylum Seekers and Society for
Integration) involving partnerships from four other Member States, namely Italy
(Orizzonti), Malta (Asylum Seekers Partnership), Greece (Ακτινεργία) and Germany
(Arbeit und Bildung International).
As part of the common activities developed in the transnational partnership,
a model for Evaluation and Validation of Competences/Skills (EVC model) is being
developed. Dr. Tito Matos, Project Coordinator in the PRC emphasises that
"Transnational cooperation plays a very important role in the development of
successful activities and approaches for the socio-vocational integration of
asylum seekers. All partner organisations benefit from learning and discussing
experiences and activities with actors from various other contexts, cultures and
countries. We in Portugal have for instance a lot to learn from more developed
countries and countries that receive more asylum seekers. Transnational
cooperation ensures that we do not make the same mistakes, and leads to better
guarantees for good services to asylum seekers across the EU." In terms of the
transnational EVC model, learning is being maximised. "Through Exchange Events
arranged by the European Thematic Group for Asylum Seekers in Round 1 and in
Round 2, we have had the opportunity to meet actors working in the same field.
Now, that we wanted to develop a common EVC model, I knew other organisations in
other countries that had also worked on such skills assessments, and contacted
them to draw on their experiences and ensure that valuable information is taken
up. Now we develop a model together with other EQUAL partnerships, which will be
tested in our various national contexts. Our competence assessment undertaken by
Santa Casa with asylum seekers here in Portugal forms an important part of the
common model".
Night turns into day
"In Round 1 of EQUAL, running from 2002 to 2005, we worked quite hard to get
organisations on board in our partnership" Dr. Maria Teresa Tito de Morais
Mendes says. "I am the first to admit that it was not an easy job to get the
various organisations on board, and in Round 1 we were not really a consolidated
partnership. Our organisation, the PCR, both coordinated the partnership and ran
all activities. The difference between our way of working in Round 1 of EQUAL
and Round 2 is like night and day – after the initial struggle to involve the
partners in Round 1, all three organisations stayed on for Round 2, and each
partner organisation is now leading at least one activity. The difference in
commitment and engagement is remarkable!" Only one partner in the VIAAS
partnership is new: the CFPSA, which was involved as this organisation provide
vocational training, which was one of the activities that the VIAAS partnership
wanted to work with in Round 2 and where none of the existing partners had the
relevant knowledge or structure to set up an activity.
In the partnership there is only one organisation, namely the PCR, that is
specialised in working with asylum seekers. The other organisations had worked
with immigrants and other socially excluded prior to joining the partnership,
but never with asylum seekers to the degree as is the case in EQUAL. Dr. Ana
Cristina Valério from the City Council of Loures explains that the Council had
not worked directly with asylum seekers at all before the EQUAL project, but is
now providing volunteering opportunities for a specific group of asylum seekers,
namely those in the appeal process who cannot work. The Social Welfare Institute
is another of the partners that has stayed on from Round 1 of EQUAL. "Our
organisation in fact has to support asylum seekers and refugees as part of the
work we are doing" Dr. Maria Julieta Santos says. "EQUAL, however, has provided
us with a fantastic opportunity to get much better knowledge of the needs of
this group of people, which in turn helps us create better quality solutions to
assist them in their integration in our society." "For us it has been a truly
excellent experience to be involved in this EQUAL project" Dr. Regina Almeida
from Santa Casa adds. "The concepts we have developed in the scope of this EQUAL
partnership can – and will – definitely be integrated in our other activities,
as they are also very relevant for other groups of socially excluded."
That the initial partnership building was quite demanding is, however,
something all partners agree on. Round 1 was very much a learning process – both
in terms of the development of activities and working together as a partnership.
In Round 2, the organisations are to a much greater extent working together as a
"whole". Even though the partnership was not functioning equally successfully as
in Round 2, the work in Round 1 proved, however, very useful to consolidate the
partnership. A number of good practices from working together in Round 1 have
been maintained. Several of these relate to creating a commitment and engagement
amongst the partners. One of these is a rotating system of arranging meetings
between the partners, since it in Round 1 became clear that being responsible
for a specific task leads to that the partners get more engaged.
In terms of the meetings between the partners, sometimes these are arranged
around specific themes, but at the same time, it has been seen as very important
to be flexible enough to change the agenda or discuss specific items as they
come up. The meetings also serve to review activities that have been undertaken
by each partner and in order to make sure that responsibilities are shared. This
leads to that all partners get information about what the others are doing,
which creates a sense of real team work and real partnership working! In EQUAL 1
the partners did not do such follow-ups together.
"We have a very good balance between formal and informal working
arrangements" Dr. Ana Cristina Valério says, and the other partners agree.
"This
is possible as we know each other for quite some time now. We do have formal
solutions in terms of what to do in case it would not be possible to reach a
decision concerning a specific activity or way forward (which is majority
decision or that the CPR decides if votes are equal), but informally we would
never go ahead with something that one partner would be completely against."
The VIAAS partnership has also brought about benefits at other levels in the
organisations, not the least through involvement of all directors in the
project, which has had important spin-off effects in terms of opening up
activities to asylum seekers and to create a commitment to the issue of asylum
seekers' integration. The directors of all partner organisations participated in
a transnational meeting hosted by their partner in Malta, where the directors
got to visit the project, met others working in the same area in other
countries, and not least important: the other directors in the Portuguese
partnership. The closer contacts between the directors has already resulted in
that the director of the Vocational training centre opened up more courses for
asylum seekers to participate in and Santa Casa agreed to provide financial
support to asylum seekers until the end of the protect, although the
organisation previously had considered to reduce the support.
"Being involved in this EQUAL partnership has helped us all to work better
together and help asylum seekers in a much better way – which means that asylum
seekers get much better and higher quality support and thereby a much better
starting point to successfully integrate in our society" the partners conclude
with enthusiasm.
Contact details
Dr. Tito Matos
Project Coordinator VIAAS
Portuguese Refugee Council
Tel. + 351 21 831 43 84
Fax + 351 21 837 50 72
E-mail: tito.matos@cpr.pt
Link to EQUAL database description
[1] Short title for Council
Directive 2003/9/EC laying down minimum standards for the reception of asylum
seekers.
[2] Not real name
[3] Not real name
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