(Data collection by Silvina Antunes, Julia Moraes, and Edward Koning. When referring to this page, please use the following citation: Koning, E.A., Antunes, S. & Moraes, J. (2024). The IESPI Database – Portugal country report. University of Guelph, www.iespi.ca/portugal/.)
Tax-paid pensions
| TP1A | Residence requirement for complete universal tax-paid pension |
| 1990-2023 | -8 (no universal public pension) |
There is no universal public pension benefit in Portugal. The main public pensions are contributory (the old-age pension, see indicators CP1-3) and means-tested (the social old-age pension, see TP2) (Garcia 2017).
| TP1B | Residence requirement for access to pro-rated portion of universal tax-paid pension |
| 1990-2023 | -8 (no universal public pension) |
There is no universal public pension benefit in Portugal.
| TP2 | Residence requirement, means-tested supplement |
| 1990-1994 | 8-11 (tied to permit demanding six years of residence, except for agreement countries) |
| 1995-2006 | 15-36 (tied to permit demanding ten years of residence for some, six for others, except for agreement countries) |
| 2007-2018 | 8-13 (six years of residence, except for agreement countries) |
| 2019-2023 | 8-10 (tied to permit demanding five years of residence, except for agreement countries) |
The means-tested pension does not come with a formal residence requirement. However, it is exclusively available to citizens and migrants from countries with which Portugal has signed relevant agreements. The residence requirement for acquiring citizenship used to be six years, but was increased to ten years for migrants from non-Portuguese speaking countries in 1994. It was lowered to five years for all migrants in 2018. In 2006, Portugal also introduced the so-called solidarity supplement for the elderly, which is available to all low-income elderly who have resided in Portugal for at least 6 years (Gil & Picarra 2020, National Legislative Bodies 2018, Parliament of Portugal 1981, Peixoto & Sabino 2009, Reis Oliveira 2022, Social Security Administration 2002, 2016). Scores on this indicator have been weighted to account for the differential rules affecting migrants from social security agreement countries (EEA countries, as well as Brazil, Canada, and Cape Verde since at least 1990, Australia since 2003, and Mozambique since 2012) and Portuguese-speaking countries (in addition to those already covered by agreements, these are Angola, Guinea-Bissau, Sao Tome and Principe, East Timor, Equatorial Guinea, and Macau) using data on the inflow of foreign-born by country of birth from the OECD migration database.
| TP3 | Status requirement for access to tax-paid pension |
| 1990-2006 | 90 (citizens and privileged nationals) |
| 2007-2023 | 70 (citizens, permanent residents, and privileged nationals) |
The means-tested pension benefit is only available to citizens and privileged nationals from countries with which Portugal has struck social security arrangements. The solidarity supplement, introduced in 2006, is available to all (permanent) residents who have resided in the country uninterruptedly for six years (Segurança Social n.d.-a, n.d.-b, Social Security Administration 2006, 2018).
| TP4 | Export possibilities, universal tax-paid pension |
| 1990-2023 | -8 (no universal pension) |
There is no universal public pension benefit in Portugal.
Health care
| HC1 | Residence requirements |
| 1990-2023 | 0 (no residence requirement) |
Ever since the establishment of the national health service in 1979, access to health care has been immediately available to all eligible residents (Costa Cabral 2020, Reis Oliveira & Peixoto 2022, Serviço Nacional de Saúde n.d.).
| HC2 | Status requirements |
| 1990-2001 | 90 (citizens and privileged nationals) |
| 2002-2019 | 10 (all legal residents) |
| 2020-2023 | 0 (all residents) |
Before 2001, health care services were exclusively available to citizens and citizens of countries with which Portugal had reciprocal health care arrangements. A sweeping reform in that year, however, opened the system to all residents. From that moment onwards, undocumented migrants were able to access health care as well, although they needed to satisfy additional criteria. Undocumented migrants’ right to health care has become fully guaranteed with the passing of a new health law in 2019 (Backstrom 2014, Casquilho-Martins & Ferreira 2022, Ingleby et al. 2005, Parliament of Portugal 2019, Reis Oliveira & Peixoto 2022, Topa et al. 2013).
| HC3A | Public health care available to asylum seekers |
| 1990-1998 | 100 (none) |
| 1999-2001 | 50 (basic services covered in reception centers) |
| 2002-2008 | 33 (included in basic system) |
| 2009-2023 | 17 (exemption from regular user fees many native-born citizens need to pay) |
Portugal did not include right to medical care in its asylum law until 1998, when it was explicitly guaranteed for asylum seekers in reception centers. The sweeping health care reform in 2001 included asylum seekers in the regular health care system. Since 2008, asylum seekers have been exempted from user fees most native-born Portuguese have to pay (Dias Urbano de Sousa 2002, ERS 2020, Parliament of Portugal 1993, 1998a, Portuguese Refugee Council 2023a, PLS Ramboll Management 2001).
| HC3B | Public health care available to undocumented migrants |
| 1990-2001 | 100 (none) |
| 2002-2019 | 17 (essential care and immediate care) |
| 2020-2023 | 0 (included in regular system) |
Before the health care reform in 2001, undocumented migrants were required to pay for all medical services they took up. Since then, they have had access to all forms of essential care and medical care. The new health law of 2019 included them in the regular health care system (Cuadra 2011, Parliament of Portugal 2019, Raposo & Violante 2021).
| HC4A | Accessibility services, translation services |
| 1990-2001 | 100 (nothing available) |
| 2002-2004 | 83 (information brochures) |
| 2005-2015 | 67 (translation services occasionally available in some languages) |
| 2016-2023 | 0 (state-funded translation services guaranteed) |
There were no health care accessibility services for migrants in Portugal before the early 2000s, when the health care system started providing some translated documents and NGOs began offering incidental outreach programs. In 2015, a government agency servicing migrants launched a telephone translation service that is freely available to all migrants (ACM n.d.-a, ERS 2015, 2020, Ingleby et al. 2005).
| HC4B | Accessibility services, other attempts to increase uptake |
| 1990-2004 | 100 (no services) |
| 2005-2023 | 50 (diversity training available to health care professionals) |
In 2004, the High Commission for Immigration and Intercultural Dialogue created the National Immigrant Support Centre, which among other things provides free training in ‘Health, Migration, and Cultural Diversity’ for any institution requesting it (ACIDI 2007, ACM n.d.-b, ERS 2015).
Contributory pension benefit
| CP1 | Minimum contribution years |
| 1990-2023 | 6-55 (15 years, migrants from agreement countries can aggregate) |
Access to the contributory pension program requires a minimum of 15 years of contributions. Migrants from countries with which Portugal has relevant social security arrangements (EEA countries, as well as Brazil, Cape Verde, Canada, Uruguay, and the United States since at least 1990, Andorra since 1991, Venezuela since 1993, Chile and Morocco since 2000, Turkey since 2001, Australia since 2003, Tunisia and Ukraine since 2011, Mozambique and Moldova since 2012, Argentina since 2015, Bolivia, Dominican Republic, El Salvador, Ecuador, Paraguay and Peru since 2016, India since 2018, and the Philippines since 2019) can count contribution years in their country of origin and therefore in effect face no minimum residence requirements (Centro Nacional de Pensões 2023). Scores on this indicator have been weighted to account for the proportion of migrants that can benefit from aggregation arrangements using data on the inflow of foreign-born by country of birth from the OECD Migration Database.
| CP2 | Status requirements |
| 1990-2023 | 80 (citizens, permanent residents, privileged nationals) |
All residents of Portugal are in theory eligible for the contributory pension program, but because of the lengthy contribution requirements it seems highly unlikely that migrants with temporary status from non-agreement countries would be able to draw from it (Centro Nacional de Pensões 2019, Garcia 2017, Parliament of Portugal 1984).
| CP3 | Export possibilities |
| 1990-2023 | 0 (no restrictions) |
Residence in Portugal is not a requirement for receiving the contributory pension benefit. It can be exported anywhere in the world (Centro Nacional de Pensões 2019, 2023, Peixoto et al. 2011).
Contributory unemployment benefits
| CU1 | Minimum contribution weeks |
| 1990-2006 | 30-67 (540 days, EEA nationals and migrants from agreement countries can aggregate) |
| 2007-2018 | 30-46 (450 days, EEA nationals and migrants from agreement countries can aggregate) |
| 2019-2023 | 32-38 (360 days, EEA nationals and migrants from agreement countries can aggregate) |
Access to contributory unemployment benefits requires a minimum number of contribution days: this minimum was 540 since the 1989, 450 as a result of a legislative change in 2006, and 360 after yet another change in 2018. Migrants from the EEA, as well as those from countries with which Portugal has signed relevant agreements (Cape Verde since at least 1990, Morocco since 2000, Australia since 2003, Tunisia and Ukraine since 2011, and Moldova and Mozambique since 2012) can count contributions in their country of origin and therefore effectively face no minimum contribution requirement in Portugal (Departamento de Prestações e Contribuições 2024, Parliament of Portugal 1989, 2006, 2018, Segurança Social n.d.-c). Scores on this indicator are weighted to account for the proportion of migrants who can benefit from aggregation arrangements using data on the inflow of foreign-born by country of birth from the OECD migration database.
| CU2 | Status requirements |
| 1990-1998 | 88 (citizens and privileged nationals) |
| 1999-2008 | 38 (citizens, permanent residents, privileged nationals, long-term work permit holders) |
| 2009-2023 | 13 (citizens, permanent residents, privileged nationals, long-term work permit holders and asylum seekers) |
Access to unemployment insurance was originally reserved for citizens and migrants from agreement countries, but a 1998 reform opened the scheme to everyone who is legally employed in Portugal and can meet the contribution requirements. Since 2008, asylum seekers who have received a temporary permit in anticipation of a determination of their claim have unrestricted access to the labour market and are therefore also included. Since 2022, asylum seekers are allowed to work from the moment they file their application for protection (Bover et al. 2000, Malheiros 2002, Reis Oliveira 2008, Parliament of Portugal 2008, Reis Oliveira & Peixoto 2022).
| CU3 | Integration requirements |
| 1990-1998 | 60 (tied to permit with integration requirements for some migrants) |
| 1999-2023 | 0 (no integration requirements) |
There have never been direct integration requirements for accessing contributory unemployment benefits in Portugal. However, until 1998, benefits were only available to citizens and privileged nationals. Any migrant who did not arrive from agreement countries, therefore, would have had to satisfy the language requirements associated with accessing citizenship in order to benefit from unemployment insurance (Parliament of Portugal 1981, Reis Oliveira 2008, Segurança Social n.d.-d).
| CU4 | Export possibilities |
| 1990-2004 | 91-95 (up to three months within EEA, not possible elsewhere) |
| 2005-2020 | 82-92 (up to six months within EEA, not possible elsewhere) |
| 2021-2022 | 0 (no restrictions) |
| 2023 | 88 (up to six months within EEA, not possible elsewhere) |
While residence in Portugal is ordinarily required to access contributory unemployment benefits, Portugal has allowed recipients to reside in another EEA member state for up to three months, and since 2004, up to six months, for the purpose of finding employment without losing their benefits. In 2020, Portugal temporarily suspended all restrictions on the export of unemployment benefits in response to the COVID-19 pandemic, but this was reversed in 2022 (Costa Cabral 2020, De Wispelaere et al. 2020: 22, Parliament of Portugal 2020, Segurança Social n.d.-e).
Housing benefits
| HB1 | Residence requirements |
| 1990-1993 | -8 (no public housing benefits) |
| 1994-2023 | 0 (no residence requirement) |
Before 1993, public housing support was relatively marginal. Since then, several social housing programs and rent assistance policies have become available. All of these are available to legal immigrants, regardless of residence or status, on the same terms as for native-born Portuguese (Agarez 2018, Malheiros & Fonseca 2011, Pato and Pereira 2016, Reis Oliveira and Peixoto 2022).
| HB2 | Status requirements |
| 1990-1993 | -8 (no public housing benefits) |
| 1994-2023 | 10 (all legal residents) |
Since the introduction of large-scale housing in 1993, the only status requirement has been legal residence. Technically, according to a decree from 1977, social housing should only be accessible to ‘adult national citizens’, but that stipulation has been ignored by all public housing agencies (Guerra et al. 2008, Horta & De Oliveira 2014, Malheiros and Fonseca 2011, Norte 2004).
| HB3 | Integration requirements |
| 1990-1993 | -8 (no public housing benefit) |
| 1994-2023 | 0 (no integration requirements) |
There have never been integration requirements associated with accessing housing support in Portugal.
| HB4 | Housing services for successful asylum claimants |
| 1990-2007 | 100 (no targeted services available) |
| 2008-2023 | 40 (services assisting on housing market) |
In 2007, a national integration plan for immigrants included housing programs and bank credit for immigrants, including successful asylum seekers. In addition, since the passing of the 2008 Asylum Act, the Council for Refugees has received public funding to run housing programs specifically targeting refugees and asylum seekers (Agarez 2018, Horta & De Oliveira 2014, Parliament of Portugal 2008, Portuguese Refugee Council 2023b).
Social assistance
| SA1 | Residence requirements |
| 1990-1994 | 26-33 (tied to permit requiring six years of residence, except EU nationals) |
| 1995 | 52 (tied to permit requiring ten years of residence for some, six years for others, none for EU nationals) |
| 1996-2004 | 14-28 (three years, except EU migrants) |
| 2005-2010 | 21-26 (three years, 3 months for EU migrants) |
| 2011-2012 | 7-8 (one year, 3 months for EU migrants) |
| 2013-2015 | 21-22 (one year for EU citizens, three years for others) |
| 2016-2017 | 6 (one year, 3 months for EU migrants) |
| 2018-2023 | 3-4 (one year, except EU and bilateral agreement countries) |
Until 1995, social assistance benefits were only available to citizens and EU migrants, and therefore third country nationals faced the indirect residence requirement that was required for citizenship: six years until 1994, and ten years for non-Portuguese speaking migrants in 1995. Since then, the program has been opened to foreigners as well after three years of residence. This requirement was lowered to only one year in 2010, then increased for third-country nationals in 2012, and then – as a result of a Constitutional Court ruling the differentiation between EU nationals and third country nationals as unconstitutional – again lowered to one year in 2015. The rules for EU migrants have been somewhat different. They have long been able to access social assistance without any residence requirements, faced a three-month waiting period as a result of EU directive 2004/38, then were required to satisfy a one-year requirement as a result of the legislative change in 2012, and since 2017 have been permitted to access social assistance without any waiting period (Collett 2011, Costa Cabral 2020, EMN 2014, Parliament of Portugal 1996, Reis Oliveira 2022, Reis Oliveira & Peixoto 2022).
| SA2 | Status requirements |
| 1990-1995 | 90 (citizens and privileged nationals) |
| 1996-2023 | 10 (all legal residents) |
Before 1995, only citizens and some privileged nationals were eligible for social assistance. Since then, the benefit has been available to all legal residents (Collett 2011, EMN 2014, Peixoto & Sabino 2009, Segurança Social n.d.-f).
| SA3 | Consequences of welfare uptake |
| 1990-1995 | 0 (no consequences) |
| 1996-2023 | 29 (can lead to non-renewal of temporary permits, decided on case-by-case basis) |
Since access to social assistance has been opened up to all legal residents, it is possible that welfare uptake has consequences for the residence permit of some migrants. More specifically, requests to renew temporary residence permits can be denied in case the applicant has claimed social assistance, even though such decisions are made on a case-by-case basis, with consideration of exceptional or extenuating circumstances (Costa Cabral 2020, EMN 2014, Peixoto et al. 2011).
| SA4 | Integration requirements |
| 1990-1995 | 60 (tied to permit with integration requirements for some migrants) |
| 1996-2023 | 0 (no integration requirements) |
There have never been direct integration requirements associated with social assistance in Portugal. However, when these benefits were exclusively available to citizens and EU nationals, third country nationals indirectly faced the language requirements associated with accessing citizenship (Parliament of Portugal 1981).
Active labor market policies
| AL1 | Residence requirements |
| 1990-1994 | 26-33 (tied to permit demanding 6 years of residence, except EU nationals) |
| 1995-1998 | 46-56 (tied to permit demanding 10 years of residence for some, 6 years for others, except for EU nationals) |
| 1999-2023 | 0 (no residence requirement) |
Before 1998, Portugal actively limited the participation of foreigners in the labour market, and only citizens and EU nationals were eligible for active labor market programs. Newcomers from outside the EU therefore faced the lengthy residence requirements for accessing citizenship (six years until 1994, and ten years for migrants from non-Portuguese speaking countries from 1995 to 1998) before they could access active labor market policies. A new law on foreign labour in 1998, however, made these programs immediately available to all legal residents whose permits allow them to take up employment in Portugal (Gil & Picarra 2020, OECD 1998, 2013, Oliveira 2008, Parliament of Portugal 1998b, Peixoto & Sabino 2009).
| AL2 | Status requirements |
| 1990-1998 | 90 (citizens and privileged nationals) |
| 1999-2008 | 50 (citizens, privileged nationals, permanent residents, and small number of temporary migrants) |
| 2009-2023 | 10 (all legal residents) |
As mentioned above (see AL1), active labor market policies were only available to citizens and privileged nationals until 1998, and became available to all legal residents whose permits allow them to take up employment in Portugal afterwards. As of 2008, this category of migrants increased considerably, in particular as a result of the decision to grant asylum seekers immediate access to the labor market (OECD 1998, Oliveira 2008, Parliament of Portugal 2008, Peixoto & Sabino 2009).
| AL3A | Availability of language programs |
| 1990-2001 | -8 (no publicly funded programs available) |
| 2002-2020 | 29 (available for all permanent residents and some temporary residents) |
| 2021-2023 | 14 (available for any immigrant) |
Portugal first introduced language programs in 2001, primarily targeting migrants who (intend to) reside for a long time in the country. Since 2020, these programs are available to all legal immigrants, including seasonal workers, temporary migrants, and asylum seekers (ACM n.d.-c, Horta & De Oliveira 2014, Matias et al. 2016, Reis Oliveira 2022).
| AL3B | Public funding of language programs |
| 1990-1996 | 100 (no publicly funded language programs, but required to learn language for benefit receipt) |
| 1997-2001 | 80 (no publicly funded language programs, but not required to learn language) |
| 2002-2023 | 0 (fully funded) |
Ever since their introduction, public language programs for immigrants have been freely available to all eligible categories of migrants. The absence of funded language programs can be seen as particularly exclusionary before 1997, when language proficiency was an indirect requirement for many immigrants to accessing social assistance (ACM n.d.-c, Horta & De Oliveira 2014, Matias et al. 2016, Reis Oliveira 2022, see also SA4).
| AL4A | Availability of employment assistance |
| 1990-2007 | -8 (no targeted services available) |
| 2008-2023 | 0 (available to all immigrants) |
Portugal first introduced targeted programs aimed at improving immigrants standing the labor market in 2007. They have since been available to all categories of immigrants (Horta & De Oliveira 2014, IEFP 2007, Oliveira 2008, Peixoto & Sabino 2009).
| AL4B | Nature of employment assistance |
| 1990-1991 | 100 (nothing available) |
| 1992-2007 | 80 (programs combating discrimination on labor market) |
| 2008-2023 | 0 (active initiatives to increase immigrant employment) |
The first efforts to help immigrants on the labor market started in 1991 but were mostly general initiatives aimed at combating discrimination on the labor market. Since 2007, Portugal has rolled out much more pro-active measures, including vocational training programs, assistance in setting up business, individualized solutions for unemployed migrants, and internships (Collett 2011, Horta & De Oliveira 2014, OECD 2019).
Works cited
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