Labour market integration of asylum seekers and refugees

Written by Dimitris Karantinos

April 2016

EUROPEAN COMMISSION Directorate-General for Employment, Social Affairs and Inclusion Unit A1 — Employment and Social Aspects of the European Semester E-mail: [email protected] European Commission B-1049 Brussels

EUROPEAN COMMISSION

Labour market integration of asylum seekers and refugees Greece

Directorate-General for Employment, Social Affairs and Inclusion European Employment Policy Observatory

April, 2016

Labour market integration of asylum seekers and refugees - Greece

Europe Direct is a service to help you find answers to your questions about the European Union. Freephone number (*): 00 800 6 7 8 9 10 11 (*) The information given is free, as are most calls (though some operators, phone boxes or hotels may charge you).

LEGAL NOTICE This document has been prepared for the European Commission however it reflects the views only of the authors, and the Commission cannot be held responsible for any use which may be made of the information contained therein. More information on the European Union is available on the Internet (http://www.europa.eu). Luxembourg: Publications Office of the European Union, 2016 ISBN ABC 12345678 DOI 987654321 © European Union, 2016 Reproduction is authorised provided the source is acknowledged.

Labour market integration of asylum seekers and refugees - Greece

Summary table to indicate what (YES/NO) support is available to (a) asylum seekers; (b) refugees; and (c) third country nationals (TCN) in Greece

Refugees Asylum Third Recipients Seekers Country of Nationals Subsidiary Protection

Is the PES involved in the labour YES YES YES YES market integration of (a) asylum seekers (b) refugees (c) third country nationals (TCN)?

Do (a) asylum seekers, (b) refugees YES YES YES YES and (c) TCN have access to:

 Hiring subsidies  Start-up (self-employment) YES YES YES YES support  On-the-job training YES YES YES YES

 Other labour market integration YES YES YES YES support? Is there a systematic mentorship NO NO NO NO scheme in place for (a) asylum seekers (b) refugees and (c) TCN?

Are (a) refugees, (b) asylum seekers YES YES YES YES and (c) TCN eligible to receive unemployment benefits or unemployment assistance?

Are benefits that are generally NO NO NO NO received by (a) refugees, (b) by asylum seekers (if applicable) and (c) TCN, conditional on job search requirements/activation?

Does the support provided to (a) NO NO NO NO asylum seekers, (b) refugees (c) TCN end as soon as they get a job?

Please specify which services asylum There are There are There are seekers or refugees have access to no no no that other TCN do not have access to. differences difference differences in service s in in service provision service provision provision

April, 2016 1

Labour market integration of asylum seekers and refugees - Greece

1 What is the role of PES in integrating (a) (some1) asylum seekers2 and (b) refugees3? If the PES is not involved, is there another agency dealing with the labour market integration of migrants? Does the support offered differ according to different factors (e.g. socio- demographic characteristics, family circumstances, host country language skills etc.)? Does the support differ according to the skill level of the target group? Are there specific programmes for these target groups? To what extent do these target groups benefit from measures for broader target groups? With respect to refugees and asylum seekers' legal rights to access the labour market, the following can be noted: As of April 2016, through Law 4375/2106 all international protection beneficiaries (refugees, beneficiaries of subsidiary protection and beneficiaries of humanitarian protection) have access to wage employment, or self-employment on the base of the same terms and conditions that apply for Greeks, provided they hold a valid residence permit. It remains to be seen whether the new legislative arrangement will have an impact upon the situation of the population in question. Prior to Law 4375/2016, the rights of the international protection beneficiaries in Greece (recognized refugees and beneficiaries of subsidiary protection) were regulated by the Presidential Decree 141/2013, which incorporated Directive 95/2011/EC on the procedures of determining the refugee status. According to Presidential Decree 141/2013 and Article 128, Paragraph 2 of Law 4251/2014, ‘Integration policies apply to all legally residing third country nationals and to members of their families’. Thus social integration policies mainly concerned migrants, with no distinction for refugees or foreigners who were beneficiaries of humanitarian protection. Furthermore, access to the labour market was regulated through Presidential Decree 141/2013 (Art. 27), in conjunction with Presidential Decree 189/1998. Although in general the law required residence and work permits, the process was somewhat different for asylum seekers and refugees. Asylum applicants and beneficiaries of humanitarian protection, who have been recognized before 2013 by the Hellenic Police and which belong to the old system (Presidential Decree 189/1998), were entitled to receive work permit, under the basic condition, that a research of the labour market was conducted by the Manpower Employment Organization (OAED) and depending on, whether there are Greeks, EU nationals, or other foreigners, who are already living in Greece or legal migrants, who are interested in this particular job position and specialty, for which the foreigner is interested, the permit is given or not, by the competent services of the Region. In the vast majority of cases, and especially since the start of the current economic crisis, applications for issuing work permits were rejected (EMN, 2015). Asylum seekers encountered many problems, when dealing with the administrative services because, in many cases, either the ’asylum seeker card’ was not recognized as proof of legal residence in the country, or they could not present evidence of their

1 The reasoning for including (some) is that there is no requirement by the EU that asylum seekers are included in integration policies. 2 Persons who have applied for international humanitarian protection but have not been granted it yet. 3 Covers all beneficiaries of international humanitarian protection – both refugees and subsidiary protection.

April, 2016 2

Labour market integration of asylum seekers and refugees - Greece personal situation. They also did not receive any special assistance and faced serious difficulties in fulfilling their tax obligations, an issue that affected their ability to enjoy social rights, such as access to benefits of welfare and unemployment (EMN, 2015). Recognized refugees and holders of status of subsidiary protection, had to submit their residence permit, which they would have acquired from the Asylum Service, a recruitment certificate by an employer saying that he will hire/employ them, a document from a public hospital, attesting that they do not suffer from any type of illness, and any other document required for a particular type of work. Refugees and beneficiaries of subsidiary protection were given the work permit more easily; no conduction of labour market research was needed. Furthermore, the period of validity of the work permit and its renewal was identical to the period of validity that applies to the residence permit. Also, the renewal was valid for the period that the residence permit applies. Their rights from the moment that they will receive the work permit are the same in level of protection, labour and social security rights, and at the support level, on issues concerning them, by the competent services of the Ministry, such as the Labour Inspection (e.g. complaints), allowances, insurance etc. just as in force for the Greeks (EMN, 2015). The recent law (4375/2016) envisages the withdrawal of the research of the labour market for the abovementioned categories of foreigners, so as all third country nationals (TCNs), residing legally in Greece, can have the same rights as Greeks. However, the priority awarded to Greek and EU citizens makes it exceptionally difficult for asylum seekers and refugees to find employment. This practice is aggravated in the current context of financial crisis and xenophobia in Greece. There have been cases where an employer may be requesting to employ a specific asylum seeker but, due to this restriction prioritizing Greek and EU citizens, the work permit may not be renewed, posing obstacles to both employers and potential employees. Indeed, even if an asylum seeker does obtain a job, he may not manage to obtain the work permit. As a consequence, asylum seekers may resort to illegal employment, which has severe repercussions, mainly the lack of certain basic social rights which in turn subjects them to further poverty and vulnerability. According to UNHCR, the labour market test in PD 189/1998: ‘[A]nd the unemployment rate of 33 % for third-county nationals in Greece limits legal working opportunities. In 2013, the regional authorities issued and renewed 6 952 work permits for asylum-seekers and rejected 1 620 requests while, in the same period, there were more than 33 000 active cases of applications for international protection pending with the police and the new Asylum Service. Without a valid work permit asylum-seekers are deprived of the enjoyment of a series of rights, including the possibility to participate in EU-funded programmes for access to the labour market, access to social benefits, such as unemployment allowances, allowances for children in single-parent families, enrolment of children in nursery schools and other rights.’4 As regards access to social rights, refugees, beneficiaries of subsidiary protection and holders of residence permits for humanitarian reasons have access to social security and thus healthcare. Asylum-seekers have because of their status access to healthcare (PD 220/2008). There is no provision for access to accommodation, other than certain possibilities to host asylum-seekers and unaccompanied minors. In relation to welfare income transfers, in accordance with Joint Ministerial Decision No. 39892/ΓΔ1.2/7.11.2014 setting the terms and conditions for the implementation of the pilot project ‘guaranteed minimum income’, in addition to the income criterion, a relevant residence permit is required for refugees, beneficiaries of subsidiary protection and humanitarian status, including stateless persons.

4 UNHCR, UNHCR observations on the current situation of asylum in Greece, December 2014.

April, 2016 3

Labour market integration of asylum seekers and refugees - Greece

The involvement of the PES in the labour market integration of asylum seekers and refugees is minimal. This is primarily due to the economic crisis, which has led to record level unemployment levels, for both Greeks and foreigners alike. Other than the crisis however, other factors are certain to play a role. The PES network is currently undergoing a major organizational change, whose aim is to modernize the provision of employment services. It should be noted that even before the crisis, Greece had no job search assistance programmes, let alone programmes targeting the specific population in question. Furthermore, since the start of the crisis, OAED has lost approximately 50 % of its employees, in spite of the fact that unemployment has reached record levels. As a result of this loss, in 2013-2014 there were, in all, 2 055 PES local officers. Taking in account the number of registered unemployed, each PES officer corresponds to approximately 475 unemployed workers. As regards labour market services outside the PES network, solidarity towards refugees gained ground during the last two years. Mainly local NGOs and international organizations, with the support of the mayors and volunteers, are currently organizing the reception of the refugees, their relocation to accommodation facilities, and the collection and provision of food, water, clothes and medicines. So far, these organizations provide mainly humanitarian support (medical, legal, social welfare, psychological and financial support), given that most migrants use Greece as a transit country to other destinations. According to press reports, there is some assistance to job orientation and search or consultancy in some of the refugee centres (namely in Agioi Anargiroi, Arsis Refugees Shelter, and Agria ), while only the Red Cross in Lavrio provides assistance in applications for working permits. 2 How does the support provided to (a) (some) asylum seekers and (b) refugees compare to other categories of migrants (third country nationals)? It would be hard to maintain that systematic employment-related support is provided either to asylum seekers and refugees, or to TCNs. The relevant services are underdeveloped and the current economic crisis has certainly aggravated the situation. Greece is currently grappling with issues related to its highly porous borders, mounting asylum applications, faltering immigrant detention system, allegations of human-rights violations, and the effective integration of the country's many foreign-born permanent residents. At the same time, Greece is struggling under the weight of what is perhaps the country's worst economic recession in recent memory. Huge public debt and the government's decision to borrow from the International Monetary Fund and the European Union have changed entirely the economic, political, and social environment of immigration in Greece. Employment and income have shrunk for both the native-born and immigrant populations, while competition within and between the two has increased. This has resulted in lower wages, a contracting labor market, and fewer regularized immigrants — drawing attention to immigration as a growing threat to the cohesion of modern Greek society. The Greek government was unprepared to receive such a large number of migrants, asylum seekers and refugees over such a relatively short period of time, and it has struggled with how best to deal with the integration of this population. Though the government has adopted, over the years regularization procedures that would legalize certain unauthorized immigrants — largely in response to pressure from constituents and human-rights organizations — nearly half of the total estimated immigrant population remains unauthorized today. Regarding other forms of immigrant integration, the government has still not crafted a satisfactory institutional framework nor adopted a specific integration policy. Briefly, there has been an increase in illegal immigration from Africa, Asia, and the Middle East, primarily through the country's porous land and sea borders with Turkey.

April, 2016 4

Labour market integration of asylum seekers and refugees - Greece

Greece has become the gateway to Europe for hundreds of thousands of unauthorized immigrants. Taken together, the country's recent economic decline, highly porous borders, growing xenophobia, and ineffective legal and institutional framework for the regularization and integration of migrants have created a fragile environment for the management of the recent refugee crisis. The recession and austerity exacerbated structural problems within Greece’s social and integration policies. Its rigid labour market reacted to the global crisis with some of the developed world’s weakest social benefits and largest cuts in mainly private sector jobs, general wages and job quality, especially for vulnerable groups like TCNs. Few had secured permanent residence and equal rights under GR’s rigid and restrictive residence policies, which were slow to respond while many who lost their jobs also lost their legal status and basic social entitlements. In the health sector, further limits and discretion in available services and even higher out-of-pocket payments led more people, especially vulnerable groups with weak entitlements like TCNs, to develop unmet health needs due to costs, waiting lists and access. GR’s small-scale investments and infrastructure on integration were severely cut in terms of language and vocational trainings, intercultural schools and support for immigrant civil society. Moreover, the anti-immigrant minority grew, as did the extreme-right (from 0.3 % in parliamentary elections in 2009 to 7 % in 2012 and 6.3 % in 2015), both attempting to block reform of Greece’s traditionally exclusive and ethno-nationalist policies on citizenship, voting rights and discrimination. Greece introduced a National Strategy for the inclusion of third-country nationals in April 20135. The Strategy places emphasis on training and developing the skills of those already in Greece; thus it sets out the categories of professions for which there have been increased needs in the last five years, such as: seasonal employment (tourism), transfer of fishery workers, highly qualified workers, and transfer of seasonal workers to the agricultural economy. In addition, the strategy also includes measures on access to: social and health services, reception and introductory courses, combating informal employment by fostering legitimate employment, combating discrimination and the promotion of equal treatment. Furthermore, it also targets vulnerable groups such as women, children, elderly people and people with disabilities. For the upcoming period, considering the large number of third-country nationals already in the country, efforts have been intensified by offering qualifications, training and skills’ development and attracting highly qualified workers where necessary. The National Strategy has also emphasized the need for an integration policy that facilitates better jobs, higher salaries or highly qualified jobs, to first and second-generation third-country nationals, by improving recognition of the education and professional training they have received abroad. More concretely, the National Strategy plan foresees the following: 1) Provide information on the work context (IKA, OGA, OAEE (TEBE, TAE, TSA), OAED, security contributions, stamp etc.). 2) Establish a site for offering and demanding employment. 3) Promote third country citizens’ information on the way to deal with discrimination they may be subject to and encourage them to file complaints. 4) Enhance corporate social responsibility. 5) Facilitate TCNs’ approach with prospective employers. 6) Guide third country nationals in high development areas that create jobs. 7) Create personalized programmes or implement mentoring actions by businesses or civil society organizations. 8) Encourage third country nationals to make full use of their skills and competencies. 9) Improve the recognition of skills and relate skills to market needs. 10) Attract highly skilled workers to the EU (and the country). 11) Offer immigrants access to the pilot project entitled ‘Minimum Guaranteed Income’ carried out in the reference year to support low-income people, granted on condition of a previous five-year legal residence in the country. Note that this pilot project included

5 Available at: http://www.ypes.gr/UserFiles/f0ff9297-f516-40ff-a70e- eca84e2ec9b9/ethnikisratig_30042013.pdf

April, 2016 5

Labour market integration of asylum seekers and refugees - Greece income support and social services, such as the provision of a booklet for the non- insured, heating allowance, social tariff of PPC, access to social groceries as well as training and re-training programmes aimed at reintegration into work. This project was implemented in 13 municipalities for six months. Several social inclusion programmes were also implemented during 2013 to 2015 under the co-financing of the European Integration Fund (EIF) by the Ministry of Interior. These included languages and history courses, as well as the establishment of an Integrated System of Remote Training. On immigrants’ integration in the labour market, despite the fact that the National Strategy for the integration of TCNs stresses that ‘employment is a key component in the process of integration, having effective importance for third country nationals’ participation and contribution in the hosting society and for highlighting such contribution’ there were no actions to implement the measures proposed in the reference year. The new 2015 SYRIZA government promised a more humane and rational migration policy as part of its social policies. A new ’Immigration and Social Integration Code’ was approved by Parliament in April 2014, regulating the entry, stay and social integration of TCNs in Greece (EU nationals, refugees and asylum seekers are not covered in the Code). The law codifies previous legislation and introduces new elements to rationalize the institutional framework and simplify regulations. The Code establishes seven categories of residence permits by purpose of stay: work or professional; temporary (a national visa provides authorization to stay); humanitarian or exceptional; study, research, training or voluntary work; victims of trafficking; family reunification; and long duration. More concretely, the new Code stipulates arrangements to facilitate the granting of a residence permit and access to the labour market for certain categories of workers; i.e. holders of residence permits intended for highly skilled employment under Directive 2009/50/EC (EU Blue Card, Article 109 seq. Immigration Code), highly qualified workers, intra-corporate transferees (Article 17, Immigration Code), TCNs wishing to develop business activity, strategic investors (Article 16, Immigration Code), including the members of their families. The Code compiles previous legislation transposing EU directives. It further consolidates the entry and residence policy for foreign real estate owners and investors. The Code also allows residence permit renewal for settled TCNs who have either lost their legal status or whose unemployment spells previously made them ineligible to renew their work permits. Second-generation migrants (legal residents either born in Greece or who have completed six grades of Greek school before age 21) will now be eligible for a special five-year renewable permit. If they fulfill the above conditions except for legal residence, a transitional one-year permit may be granted. In June 2014, a joint ministerial decision established categories of TCNs who may be granted a residence permit for humanitarian reasons, including asylum seekers whose application has been rejected and who cannot be returned to their home countries, due to objective reasons. In general, with respect to access to the labour market, following the 2014 New Migration Code, TCNs have slightly favourable access to the labour market and, now, self-employment. Under the Code, TCNs renewing their first permit receive a permit for employment or entrepreneurship, with clearer conditions on setting up a business in Greece. The new system benefits several categories of immigrants, though migrant workers can only become entrepreneurs after becoming long-term residents. Under the new Code, TCNs' access to the public sector continues to be restricted (though the number of public sector jobs is small and shrinking). As regards access to general support, TCNs enjoy equal access to education, training, study grants and employment services and those with work experience should, in theory at least, benefit from easier recognition of their skills. According to press reports however, the highly-educated face complicated, uneven and uncertain procedures to recognise non-EU academic and professional qualifications. It should be noted that Greece offers no targeted support to help low or high-educated job-seekers to overcome their limited experience, knowledge

April, 2016 6

Labour market integration of asylum seekers and refugees - Greece and language skills. With respect to both low and highly educated job-seekers, language and professional training courses are organized in an ad-hoc manner, depending on the availability of EU resources, and are not regular, accessible or adapted enough to reach the many TCNs in need of such support. 3 Do (a) asylum seekers, (b) refugees and (c) other third- country migrants have access to other ALMPs such as:  Hiring subsidies,  Start-up (self-employment) support  On-the-job training  Other labour market integration support? Active measures are designed by the Ministry of Labour and regularly executed by OAED, in the frame of Operational Programmes co-financed by the European Social Fund. Until today there have been no measures targeting the population in question. With respect to asylum seekers, refugees and migrants, given the difficulties encountered in obtaining a residence or work permit (necessary for access to active measures until recently), and also because of the authorities prioritizing natives and EU citizens, participation in ESF backed measures is minimal. For reasons of fairness, asylum seekers, refugees and legalized migrants should be encouraged to participate in schemes by national bodies (notably by OAED) involving grants for business start- ups and/or hiring subsidies and receive additional support on the same terms and conditions as the EU citizens and natives. Regarding access to vocational education/training, through Law 4375/2016 recognized refugees and beneficiaries of international protection, provided they have a valid residence permit, can be enrolled to the training programmes of the Manpower Employment Organization (OAED), on the same terms and conditions that are applied for the Greek nationals (Article 70 of Law 4375/2016). According to the same Law, in case recognized refugees and beneficiaries of international protection encounter difficulties in providing the necessary documents required, they can still be enrolled by submitting a declaration of Law 1599/1986, accompanied by the official document of the Hellenic State, regarding the recognition of their refugee status. Vocational training actions and supportive services targeting asylum seekers, refugees and migrants take place by International Organizations and Civil Society institutions. The work of the NGO PRAKSIS, is worth mentioning, with the support of the NGO SOLIDARITYNOW6, the Municipality of Athens7, the EEA Grants8, and the Embassy of Norway9. PRAKSIS implements the Programme ’Employability Centre’, within the context of the Athens Solidarity Centre in the Garrison headquarters (‘Frourarchio’ in Greek), where free of charge supportive services, for unemployed men and women, are provided (EMN, 2015). Vocational counseling, online job search with the help of specialized consultants, group workshops, seminars and networking activities, are some of the actions taken aiming at the support and development of the skills of the beneficiaries of the programme. In addition, an innovative element of the ’Employability Centre’, comprises the online networking platform of the beneficiaries with enterprises/businesses/companies that participate through their Corporate Social Responsibility programmes. Employment counseling services are addressed to, among other vulnerable groups, immigrants, asylum seekers and refugees10.

6 See: http://www.solidaritynow.org/our-work-gr/centers-gr/athens-center-gr.html 7 See: http://www.cityofathens.gr/node/26022 8 See: http://eeagrants.org/News/2015/Helping-people-in-need-in-Greece 9See:http://www.norway.gr/News_and_events/The-EEA-and-Norway-Grants1/EEA-Grants- Greece/Funding-period-2009-20141/Norway-provides-humanitarian-aid-to- Greece/#.Vi4JzH5giko 10 See: http://www.praksisemployability.gr/index.php/GR/

April, 2016 7

Labour market integration of asylum seekers and refugees - Greece

The only policy area where some labour market integration support is provided systematically, is perhaps language teaching. Greece provides language and civic courses to all immigrants, both TCNs and EU citizens, through the structures of the Ministry of National Education & Religious Affairs. Furthermore, in the framework of the European Integration Fund, under Annual Programmes, , history and culture as well as civic orientation courses are being implemented both in the Hellenic territory and abroad (pre-departure measures in Moldova and Georgia). In order to attend the courses, the immigrants have to prove their legal residence in the country (any document proving temporary or permanent residence), while the duration of the courses is the same no matter what the status of the immigrants (temporary or permanent residence). Immigrants attend 150 - hour language courses and 25 - hour Greek history and culture courses, under the Educational Programme entitled ‘Certification of adequate knowledge of the Greek language and elements of Greek history and culture of TCNs’ (Ministry of National Education & Religious Affairs). Furthermore, immigrants attend 100 to 150 - hour language courses, depending on their language attainment, under the Educational Programme entitled ‘Teaching of the Greek language as a foreign language to immigrant workers’ (Ministry of National Education & Religious Affairs). It should be noted that the immigrants do not have to pay for the above mentioned courses, as these are co-financed by the EU and the state/municipality budget (EMN, 2015). More recently, the new migratory Code lays down the adequacy of knowledge of Greek language, history and culture as a criterion for inclusion and granting of a long-term residence permit (Article 107). In this frame, the General Secretariat for Lifelong Learning of the Hellenic Ministry of Education and Religious Affairs has organized and implemented the educational programme ‘Training of immigrants in Greek language, Greek history and Greek culture – Odysseus’. The objective of the Odysseus programme was to provide TCNs with a comprehensive training programme, thereby helping them to improve their employability and ensure equality of opportunities in accessing the labour market (EMN, 2015). The Programme ‘Odysseus’ targeted citizens of the European Union (EU) and third- country nationals who are legally residing in Greece, irrespective of their origin. The project included Greek language learning as a second language, and elements of Greek history and Greek culture. Upon completion of the planned course of study the trainees were given the opportunity to participate in exams in order to obtain the Certificate of Greek Language Attainment A2 of Lifelong Learning, which is considered as precondition for the acquisition by TCNs, of the long-term resident status, according to the Greek legislation regarding the Certification System11. The Odysseus programme was implemented under the Operational Programme ’Education and Lifelong Learning’ of the Hellenic Ministry of Education and funded by the European Union and the Hellenic State. In addition, the National Centre of Social Solidarity under current training programmes (KEK) implements the ‘Hypatia’ programme: Greek language and Culture teaching to asylum-seekers and TCNs (start date 1 October 2014). An initiative from the University of the Aegean should also be highlighted. The Council of the University of the Aegean unanimously decided to exceptionally accept refugee students without the usual admission tests. It is the first time that such measures are going to be implemented by a University in Greece but their application is conditioned by, first, their approval by the competent national institutions, and second, the reception of the necessary funding. Other than the above programmes, various educational activities targeting immigrants and refugees have been recorded, as indicated below.  The Educational Organization AKMON S.A. in cooperation with the Association of Afghan Immigrants and Refugees in Greece completed the implementation of

11 Ministry of Education, Research and Religious Affairs, General Secretariat for Lifelong Learning, see: http://www.gsae.edu.gr/en/press/275--lr-l-r

April, 2016 8

Labour market integration of asylum seekers and refugees - Greece

an Action Plan with object the training of refugees in the greater area of Athens. The purpose of the Plan was to contribute on the improvement of the skills of 116 refugees and asylum seekers, aiming at faster and smoother integration into the Greek society, and included free Greek language courses12 of A2 level for 50 beneficiaries (providing the opportunity to 30 of them to acquire the Certificate of Greek Language Attainment without a charge). The action was implemented in the framework of the annual programme 2011 of the European Refugee Fund (ERF).  Greek language courses for refugees, recognized beneficiaries of subsidiary and humanitarian protection and immigrants are implemented by the Migrants’ Social Centre (Steki Metanaston), under the initiative titled ’Back Desks’ (Piso Thrania). The programme ‘Back Desks’ (Piso Thrania) was established in Autumn 1999 in the context of the Social Support Network for Refugees and Migrants, as an initiative of practical solidarity to economic and political refugees13.  Furthermore, the NGO METAdrasi is an organization of Civil Society and operational partner of the International Organization United Nations High Commissioner for Refugees (UNHCR) in Greece. METAdrasi offers the opportunity of learning the Greek language through free courses, of approximately four months duration, in order to combat the social exclusion of asylum seekers and refugees, and their integration into the Greek society, with the possibility of obtaining official Certificate of Greek Language Attainment. There is no distinction regarding the participants, all TCNs have the right to participate in the courses, without providing specific requirements for attendance of the courses, like e.g. a legitimizing document, or permanent residence etc. (EMN, 2015). By the end of 2014, a total of 32 educational departments/classes operated, which by 935 students attended. In order to implement the project, the Organization cooperates with professors from the Greek Modern Language Teaching Centre of the National and Kapodistrian University of Athens. It is worth mentioning that, the educational programme of studies followed is similar to the one of the Greek Modern Language Teaching Centre, while the learners obtain the necessary teaching material (books, photocopies of notes and exercises) and a dictionary in the language of the learner (if available). The attendance to the classes is obligatory (EMN, 2015). Additionally, the Intercultural Centre for the Promotion of the Integration of Refugees ‘- PYKSIDA’ of the Greek Council for Refugees- addressed to refugees and asylum seekers who reside in the country as an awareness centre of the local community- organizes and implements various cultural and educational activities such as Greek language courses, English language courses, personal computer courses, supportive teaching for refugee-students in Greek schools and awareness programmes of the student communities etc14. Finally, in the framework of the European Refugee Fund (ERF) for the economic year 2012 and with the co-financing of the Hellenic Ministry of Labour, Social Security and Welfare and the European Refugee Fund (ERF), the PanHellenic Association of Assyrians undertook and successfully completed the project of total duration of five months (1 February 2014 to 30 June 2014), entitled ’Learning Greek’, which was an integral part of a broader effort to provide social support to individuals who belong to the target groups (individuals with refugee status, individuals who enjoy subsidiary or temporary protection) and their family members, of Assyrian origin (EMN, 2015). The main objective of the project was to improve the living conditions of the beneficiaries through

12 See: http://v1.akmon.edu.gr/files/images/etp-afisaellinikiglossa.pdf 13 See: https://goo.gl/qKFxqX 14 See: http://www.gcr.gr/index.php/el/about-gcr/structure/compass

April, 2016 9

Labour market integration of asylum seekers and refugees - Greece their equipping with language skills. 30 beneficiaries participated in the Greek language learning courses15. Lastly, it should be mentioned that the new code ensures equal treatment between TCNs and Greek nationals in a number of cases (insurance rights, social protection, compulsory schooling for children, supporting documents to register minors in Greek schools, access to higher education (Article 21), provided that they hold a valid residence permit. Equal treatment with nationals for holders of researcher residence permit is foreseen (Article 67) as regards recognition of diplomas, working conditions, social security, tax benefits and access to goods and services available to the public. 4 TCNsWhat are the concrete obstacles/challenges faced by (a) asylum seekers and (b) refugees in successfully integrating into the labour market? Until recently, the main obstacle in the labour market integration of asylum seekers, refugees and third country migrants in Greece was the requirement for them to pass a ‘labour test’ as a condition for being granted a work permit. This only allowed a refugee or third country migrant to obtain a work permit only if no Greek or EU citizen was available for a job. The labour test was abolished through Law 4375/2016. Other than the regulation of the legal rights to access the labour market, the state of the labour market and the record level unemployment rates because of the crisis, pose great problems in designing and delivering measures targeting the integration of the population in question. Most of the active measures implemented during the last few years have targeted the young, and to some extent, the women. In contrast, other categories such as the older workers and persons from the vulnerable groups (i.e., the disabled, the lone parents, etc.) were targeted to a smaller extent, or left without coverage (such as the asylum seekers, the refugees and the migrants). Labour Force Survey data for the period 2005 to 2014 show a spectacular rise in unemployment for both immigrant men and women (mainly TCNs) since the start of the crisis in 2009. Immigrant men jumped from nearly full employment to 8 % (EU citizens) and 11 % (TCNs) in 2009, reaching 30 % (EU citizens) and an alarming 40 % (TCNs) in the last trimester of 2012. Quite surprisingly unemployment for both TCNs and EU citizens (non-Greeks) has improved somewhat in the last 18 months going down to, a still too high of course, 34 % and 28 % respectively. Looking at the gender variation of unemployment levels, we notice that male TCNs were able to resist the crisis and registered only 14 % unemployment in 2010 (up 2 percentage points from 2009) but the situation exploded since then. Their current unemployment has nearly quadrupled compared with 2009. Women have a higher unemployment rate, on average between 11 % and 13 % in 2009, also climbed to a worrying 35 % (female TCNs) and 27 % (female EU citizens) in 2012, slightly reduced to 26 % and 34 % in mid-2014. In the case of women, the following observation is necessary; many migrant women from third countries were working in the informal labour market (e.g. as cleaners or carers without contracts and social security stamps) and were insured under their husbands’ work and social security fund. This explains the relatively high levels of official unemployment during the period 2005 to 2009. What we probably notice in recent years is that migrant women who had jobs with contracts and insurance are now losing them and their unemployment rate climbs. In summary, it comes as no surprise that the Greek economy is shrinking and that unemployment has been quickly rising, both for natives and for TCNs. The employment prospects for both men and women from non EU countries are rather bleak as they are doubly hit by the crisis. Men suffer because of the crisis in the construction sector, in

15 See: http://assyrians.gr/index.php/2011-01-12-10-06-08/2011-01-12-10-07-57

April, 2016 10

Labour market integration of asylum seekers and refugees - Greece public works and in transport which has left them out of work. Women start suffering too, however, as the crisis is hitting now also middle class Greek families who have cut off on cleaning and care services usually provided by foreign women. In short, our outline of the composition and features of the immigrant population in Greece suggests that immigration has acquired the character of a long-term phenomenon in Greece. Immigrants have integrated into the labour market initially in the so called 3D jobs (dirty, dangerous and demanding) but have also experienced upwards mobility in the last decade. The situation however has changed in the last five years with the onset of the economic crisis. Many of the migrant jobs were lost as they were in sectors that were hit the worst by the crisis notably construction, transport, and retail. Nonetheless Greece remains home to approximately 0.9 million immigrants of whom 0.2 million come from EU countries (mainly Bulgaria and Romania) while the remaining 0.7 come from non EU countries most notably neighbouring Albania. Approximately 150 000 people hold indefinite duration or ten year stay permits, testifying to the fact that migrants and their families have taken roots in the country. According to some researchers (Triandafyllidou, 2014), the (non-frictional) integration of Albanians in the Greek labour market, points to the dynamics of a buzzing informal labour market, which needs cheap and flexible seasonal work in tourism and agriculture. These pull factors and the pre-existing strong networks are critical in shaping the ‘irregular’ migration condition. The ‘metaklisi’ scheme (assessing the internal labour market needs and inviting foreigners to apply for a labour entry visa from their own country of origin along with the completion of complex paperwork by the employer) does not correspond to the country’s labour market structure which is characterized by sectors with small enterprises (e.g. catering, tourism) and with seasonal labour needs (agriculture, fishing) or where the family is the employer of the migrant (domestic work, private care). According to the same author, the Greek state should provide incentives to employers to better enforce the law on seasonal work, should put in place simplified procedures and inform workers about their rights. This would reduce instances of labour exploitation and increase tax incomes in the long-term. It is well known that one of the main alternative strategies employed for irregular migrants so as to acquire a legal status, even if for a short period of time, was applying for asylum. Further, the Greek authorities ought to invest further in bilateral agreements of seasonal work, such as the ones already conducted with Egypt, Bulgaria and Albania. 5 Is there a systematic mentorship scheme in place for (a) asylum seekers and (b) refugees integrating into the labour market (and/or society more generally)? No such mentoring scheme exists. Social integration is left to the NGOs, while various relevant measures are foreseen by the Greek Asylum, Migration and Integration Fund (AMIF) National Programme (2014 to 2020)16. Regarding NGOs, perhaps the most notable efforts are those by Praksis and the Ecumenical Refugee Programme (ERP). Praksis provides to socially vulnerable groups in need, regardless of colour, race, religion, age, nationality, ideology, sexual orientation or political beliefs through an array of programs. One of these initiatives is ‘syn sto plin’, a programme that intends to provide relief to vulnerable social groups who are on a daily basis severely affected by the consequences of the crisis. It focuses on intervention through Day Centres in Athens and Piraeus that offer relief and assistance to homeless people in need of support. Recorded visits in both centres range from 150 to 200 on a daily basis, and on Prevention by offering support to Greek families with children in Athens and in Thessaloniki that due to the crisis are facing poverty and the immediate risk of homelessness. Each month 550 families are supported (EMN, 2015).

16 Available at: www.ypes.gr

April, 2016 11

Labour market integration of asylum seekers and refugees - Greece

The Ecumenical Refugee Programme (ERP) is a special service for refugees within the Integration Centre for Working Migrants, an NGO of the Church of Greece. They primarily provide legal assistance and representation to asylum seekers and refugees as well as social support and are one of the main Organizations in this field in Athens. With respect to the AMIF National Programme (2014 to 2020), the main pillars are to: a) Ensure the sustainability and integrity of the new asylum system, including inter alia, full clearance of the pending cases under the previous asylum system; and b) Strengthen reception capacity, improve living conditions/establish a sustainable reception system. The main targets set by the Programme are to: a)Increase reception capacity at minimum 2 500 places and improve living conditions in all reception facilities; b) Improve access to the asylum procedure by increasing, inter alia, the number of the regional asylum offices and improve the quality of procedures and the decision making process of asylum claims and maintain its speed; c) Clear all cases pending under the previous asylum system; and d) Provide special treatment and support to vulnerable groups. Unaccompanied Minors (UAMs) will be able to benefit from proper reception and care. Expected results include: a) Sustainability of the new asylum system and finalization of the cases pending under the previous system; and b) Better reception conditions, provision of services to the asylum seekers and asylum procedures, including the access to the asylum procedure. The AMIF Programme contains a priority axis devoted to National Strategy on Integration. The main pillars of this strategy relate to: a) Promotion of regular migration with Country of Origin (CoO) pre-departure measures; b/ Enhancement of third-country nationals (TCNs) language skills, improvement of the attainment in the education system, assistance of TCNs integration in labour market, promotion of access to social security, healthcare, participation in TCNs organizations/local authorities, promotion of interculturalism and combating racism and xenophobia; c) Promotion of the integration of specific vulnerable groups; d; Provision of accommodation to vulnerable groups of legally residing TCNs(with a wide range of services); e) Protection of UAMs; and f) Establishment of integration structures with a wide range of services. On social integration, the Greek AMIF Programme has set the following goals: a) Pre- departure preparation with a view to facilitate their integration; b) Sensitization of local society through awareness raising campaigns, intercultural training of civil servants, creation of intercultural dialogue platforms, etc; c) Provision of accommodation in Rented Apartments to vulnerable groups of legally residing TCNs for integration into society in mixed communities and regions; d) Strengthening intercultural mediation services, increasing of cultural awareness; e) Smooth integration of TCNs in Greek society, equal participation in the economic, social, cultural life of the country; f) Establishment of a sustainable and efficient reception and guardianship system for unaccompanied minors(UAMs); g) Establishment of infrastructure (Migrant Support Center) aiming at the creation of a sustainable and coherent framework. Expected impacts include the following: a) Preparation of potential migrants through introductory programs in countries with which Greece has signed mobility partnerships-bilateral agreements; b) Increase in tolerance of the local society, fight against racism and xenophobia, strengthening of the mutual understanding/interaction between migrants and locals; c) Empowerment of migrants, in order to facilitate their integration through language programmes, intercultural mediation, counseling; and d) Promotion of legal employment, education/training, support family reunification etc. by providing accommodation in rented apartments with support services. According to the Greek AMIF Programme: ‘Greece intends to use the National Strategic Reference Framework through the ERDF and ESF in order to address partially the needs of integration. Investments in the field of Health Care and Social capacity building at regional level will take

April, 2016 12

Labour market integration of asylum seekers and refugees - Greece

place within the above mentioned framework including and covering the target- group of legal migrants. As regards ESF, national goals are: a) Active integration process, such as the promotion of equal opportunities and the improvement of accessing to the employability, b) Combating all forms of discrimination, c) The improvement of the procedures to achieve the effective access to most economical, sustainable and high quality Services, and d) The promotion of social entrepreneurship and actions to facilitate the access to employability.’ 6 Are (a) refugees and (b) (if applicable) asylum seekers eligible to receive unemployment benefits or unemployment assistance?17 Until the passing of the Law 4375/2016, given the difficulties encountered by refugees, asylum seekers and TCN in obtaining a work permit, eligibility in receiving unemployment benefits amounted to little more than a pure theoretical possibility. Still, if a migrant loses his/her job, he/she may contact the Manpower Employment Organization (OAED) through which he may be insured as unemployed, receive an unemployment benefit for a certain period of time, participate in subsidized vocational training programs and receive advice on finding a job (employment counselling services). OAED provides insurance coverage to the registered unemployed individuals, for a limited period of time depending on how long they were in employment and in unemployment. What is more, OAED grants the unemployment benefit for a certain period of time to individuals who lost their job because their employment contract had expired or been terminated by the employer (dismissal). Also, the Organization provides other benefits as well (in services and money) such as the family allowance, maternity allowance or the Day Nurseries of OAED (for the working mothers who are entitled to enroll their children to the (now abolished) Workers’ Fund Organization. Finally, OAED provides Employment Counseling Services, in which the interested parties may get advice on accessing the labour market. In order to register at OAED and receive the Unemployment Card a migrant worker needs to submit the following supporting documents to the Organization’s office local office:  A valid passport or identity card,  A residence permit or work permit (for TCNs)18,  The applicant’s most recent Income Tax Notice of Assessment or, failing this, a copy of an already submitted income tax return (Ε1). The unemployed individuals that appear as dependents (such as children) need their parents’ latest submitted income tax return (Ε1),  An electricity, water or fixed telephone bill, or a copy of a house rental contract that has been submitted to the relevant Public Financial Service (as proof of address),  An official document indicating the applicant’s Social Security Number (ΑΜΚΑ) (e.g. issued by KEP or ΑΜΚΑ offices). Seasonal workers are entitled to a special allowance, provided that they are insured with IKA and practice one of the following professions19: construction worker, stone cutter, tiler, brick maker, potter, forest worker, resin collector, tobacco worker,

17 As regards unemployment benefits Dir 2011/98 Art 12 (1) e – obliges MSs to provide equal treatment to all TCNs except asylum seekers and as regards refugees there is also the legal obligation to provide equal treatment under the Qualifications Directive 2011/95 18 The work permit will be abolished by virtue of Law 4375/2016. 19 The conditions for the special seasonal allowance are described at: http://www.learnaboutgreece.gr/english/section5-5.php

April, 2016 13

Labour market integration of asylum seekers and refugees - Greece musician, member of the relevant professional association, shoemaking worker, salaried worker in shipyard areas, excavating, elevating, road construction, drilling machine operator actor, cinema and television technician, film projector operator and assistant operator, cinema and theater checker and cashier, salaried worker in the tourism and catering industry and emery worker. 7 In what ways are benefits that are generally received by (a) refugees and (b) by asylum seekers (if applicable), conditional on job search requirements/activation? As noted earlier, prior to Law 4375/2016, without a valid work permit asylum-seekers and refugees were deprived of the enjoyment of a series of rights, including the possibility to participate in EU-funded programmes for access to the labour market, access to social benefits, such as unemployment allowances, allowances for children in single-parent families, enrolment of children in nursery schools and other rights. Job-search requirements on benefit recipients are foreseen by laws, but rarely enforced in Greece and existing sanctions for non-compliance have never been applied. Similarly, participation in targeted re-employment actions is not compulsory and the unemployed are advised but not required to participate in the programmes that are judged most suited to their needs (this is the case also for natives, not just for foreigners). 8 Does the support provided to the (a) asylum seekers, (b) refugees and (c) other migrants end as soon as they get a job or does it continue for a while during the first phase of their employment? If yes, what support continues? Provided that a refugee/asylum seeker/migrant gets a job, he/she may still use the employment counseling services. These services do not include language training and are offered by OAED, the Labour Institute of the General Confederation of Greek Workers (INE GSEE), by many IEK, KEK and KEE and some NGOs, and provide individualized support and information on the most effective techniques for finding a job, assistance in writing resumes and cover letters, professional help in job search and preparation of interviews. The Manpower Employment Organization (OAED) offers Counseling and Professional/Occupational Orientation Services –regarding Career Management, in order to assist the beneficiaries to be able to decide what occupation/profession they could exercise, according to their professional/occupational profile, the characteristics of the job position and the prospects of the labour market. The Orientation Service, is addressed either to individuals who are entering the labour market for the first time, without a clear career prospect/goal, or to individuals who have to change the profession they have exercised in the past20. The benefits from participation in a group of Counseling of Vocational Orientation, include: Investigation of their skills, abilities, values, interests and personal characteristics; Professional/occupational development; Information on educational opportunities, vocational training, employment; Composition of the professional/occupational profile (professional/occupational interests, values, skills, abilities and personal characteristics) in relation to the characteristics of the requested job position. A prerequisite for participation in the groups of Counseling of Vocational Orientation is the possession of an unemployment card21.

20See:http://www.oaed.gr/index.php?option=com_content&view=article&id=453&Itemid=789&l ang=en 21See:http://www.oaed.gr/index.php?option=com_content&view=article&id=453&Itemid=789&l ang=en

April, 2016 14

Labour market integration of asylum seekers and refugees - Greece

9 To what extent are social partners systematically involved in (a) labour market integration service provision and/or (b) labour market integration service/policy definition and design? It would be hard to maintain that social partners are systematically involved in labour market integration service provision for refugees/asylum seekers and migrants, let alone in policy definition and design. As an exception to this rule, for young people (from 16 to30 years old) looking for a job, the Specialized Employment Promotion Centres (EKPA) of INE GSEE operate in the three largest cities of Greece (Athens, Thessaloniki, Patras) and provide services via the internet, on the website: www.ekpaine.gr. 10 To what extent is the labour market integration of refugees well-coordinated within the country? Do employment agencies and asylum authorities coordinate? On the whole, the policy framework for refugee integration in Greece is underdeveloped. Greece was a latecomer in putting integration in the policy agenda and has done so mostly prompted by EU norms and Directives. Although legislation has gradually granted more rights to legally residing TCNs, the measures and policies adopted to actively facilitate the integration of migrants have mostly remained on paper (ELIAMEP 2015). The integration measures that have been implemented are generally fragmented and ad hoc. There is a lack of a coherent approach to refugee integration, and, in part, this is linked to the limited influence, or even absence, of a technocratic approach and culture in Greek public administration and among political parties and elites. It is also linked to an endemic and generalized lack of inter-ministerial coordination in sectors and issue areas where multiple institutional actors have to be involved, as required in the field of immigration and social integration. While vulnerable groups are usually referred to in integration policy documents, their integration experiences are not evaluated. No specific requirements or indicators for monitoring integration have been developed nationally and existing data are not formally used to measure and report on integration. To the extent that any monitoring takes place, it is project-based and implemented by independent entities mostly though EU funds. The current economic crisis and the austerity measures applied have of course, exacerbated problems, and through for example cuts in the provision of public services, which are of the utmost importance to the most vulnerable population groups. Bibliography Anagnostou, D., & Kandyla, A. (2014), ASSESS - Integration of Vulnerable Migrant Groups. National Report Greece. ASSESS Country Report, 1–57. EMN (2014), ‘Annual Policy Report on Immigration and Asylum in Greece’, Athens. EMN (2015), Integration of beneficiaries of international/humanitarian protection into the labour market: Policies and good practices, Athens. Gropas, R., & Triandafyllidou, A. (2008). Discrimination in the Greek workplace and the challenge of migration (pp. 1–32). Emilie Report, Athens. IOM, (2010), Migration, Employment and Labour Market integration policies in the European Union (2000-2009). Part 2: Labour Market Integration Policies in the EU (2000-2009). Triandafyllidou, A., & Gemi, E. (2015), Irregular migration in Greece: What is at stake?, ELIAMEP, Athens. UNHCR, (2014), UNHCR observations on the current situation of asylum in Greece, December 2014.

April, 2016 15

HOW TO OBTAIN EU PUBLICATIONS

Free publications:  one copy: via EU Bookshop (http://bookshop.europa.eu);  more than one copy or posters/maps: from the European Union’s representations (http://ec.europa.eu/represent_en.htm); from the delegations in non-EU countries (http://eeas.europa.eu/delegations/index_en.htm); by contacting the Europe Direct service (http://europa.eu/europedirect/index_en.htm) or calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) (*).

(*) The information given is free, as are most calls (though some operators, phone boxes or hotels may charge you). Priced publications:  via EU Bookshop (http://bookshop.europa.eu).

Priced subscriptions:  via one of the sales agents of the Publications Office of the European Union (http://publications.europa.eu/others/agents/index_en.htm).