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LIVELIHOODS S T R AT E G Y 2019 2021 B R A Z I L
LIVELIHOODS S T R AT E G Y 2019 2021 B R A Z I L
SUMMARY © ACNUR/Victor Moriyama
EXECUTIVE SUMMARY 6
1 INTRODUCTION10
2 BACKGROUND14
3 SITUATION ANALYSIS 24
3.1 Work in the Country of Asylum 26
3.2 Livelihood Zones 30
3.3 Livelihoods Groups and Assets 32
4 ACCESS TO ASSETS AND SERVICES 38
4.1 Household Livelihoods Strategies 42
5 CURRENT LIVELIHOODS INTERVENTIONS 44
6 STRATEGIC FRAMEWORK 50
6.1 Vision and Scope 52
6.2 Overall objective 52
6.3 Key Programmes, Activities and Partners per target group 53
7 IMPLEMENTATION PLAN 58
7.1 Targeting60
7.2 Partnership and Coordination 60
8 COMMUNICATION AND ADVOCACY 62
9 MONITORING AND EVALUATION FRAMEWORK 66
10 ANNEXES70
EXECUTIVE SUMMARY
© ACNUR/Luiz Fernando Godinho
EX EC UT I VE SUMMA RY
EXECUTIVE to include persons of concern2 (PoC) into the
public services of professional trainings, job
SUMMARY placement and preparation for entrepreneurs
and, at the same time, complement
such services for the most vulnerable
PoC through implementing partners.
To do so, UNHCR will work closely
The Brazilian Federal Government has with the government at federal, state
recognized 11.231 individuals as refugees and municipal levels, UN agencies, civil
and it received 161.057 requests of asylum society, Academia and the private sector.
presented by individuals coming from nearly Moreover, this Strategy strives to overcome
150 different countries by December 20181. the high unemployment and informality
Additionally, due to the ongoing political rates in the labour market, growing
and economic crisis in Venezuela, over xenophobia, lack of information by civil
176.000 nationals from this country entered servants, banks and financial institutions,
Brazil between 2017 and December 2018, which hampers PoC´s self-reliance.
with nearly 61.000 asylum requests and In this sense, UNHCR’s support
26.000 requests of permanent residency is to be provided through interventions
in the country. By April 2019, over 7.000 designed to (i) increase the chances these
Venezuelans had been benefited by the persons have of seizing socio-economic
voluntary relocation program launched in opportunities, which will ultimately result in
2018 by the Brazilian Federal Government, them becoming self-reliant and economically
being redistributed amongst the country. independent, and (ii) to strengthen the
This document describes a three- private network of NGOs and businesses
year Livelihoods Strategy for the period that support local integration. These
of 2019 to 2021 that is set to support interventions, although carried out by
low-income refugees, asylum seekers UNHCR, are complimentary to the efforts set
and Venezuelans of various educational forth by the Brazilian Federal Government.
and professional backgrounds. The target of this strategy will be on
The fundamental approach of low-income recognized refugees and asylum-
the strategy is to include PoC in public seekers (unemployed and/or living with a
services and programs (in particular socio- household income of less than BRL3.000);
economic and employment programs) and refugees that have high educational profile
to stimulate a friendly environment in the (with low-income jobs outside their previous
private sector towards refugees and other professional experience) and Venezuelans
PoC. Specific livelihoods interventions in need of protection and social assistance.
conducted by UNHCR and partners should To achieve the abovementioned outcomes,
be residual, except in case of emergencies, UNHCR will implement its activities
in which UNHCR will scale up its assistance in key intervention areas in order to
to support governmental response. produce the following specific results:
This Livelihoods Strategy´s main
objective is to advocate with Governments
2 UNHCR´s persons of concern include refugees,
returnees, stateless people, the internally displaced,
1 Refúgio em Números 4ª Edição - https://www. asylum-seekers and other individuals in need of
justica.gov.br/seus-direitos/refugio/refugio-em-numeros international protection.
8
LIV E LIH O O D S STRATE GY • 201 9 — 2021
• Employment: with the objective to
Employment: • Research and Content
foster PoC employment, UNHCR Development: UNHCR will
will: expand partnerships with promote continuously POC´s socio-
businesses; strengthen existing economic profiling assessment.
job placement services offered by • Advocacy
Advocacy:: At a macro level, UNHCR
partners; expand the access of PoC will support the Brazilian Federal
to information related to employment Government on its efforts to develop
and labor rights; expand the access a National Plan for Local Integration
to vocational training and foster for Refugees. Following a more
employment of young PoC (through context-specific approach, UNHCR
apprenticeships and internships). will work alongside state and local
• Entrepreneurship:
Entrepre neurship: UNHCR governments to develop Plans of
will encourage and foster Local Integration for Refugees and to
entrepreneurial activities, by, for expand dialogue between refugees
instance, capacity building and and municipalities both at municipal
associating entrepreneurship to and state levels. In addition, this
access to microcredit loans. Strategy is set to promote local
• Cash Assistance:
Assistance: The cash assistance and state committees for refugees’
programme will be improved, leading successes and overall activities.
to enhancements in delivering Ultimately, this Strategy will lead
financial assistance to PoC that to the empowerment of UNHCR’s
can’t satisfy their basic needs. persons of concern in Brazil, lifting
• Financiall Inclusion: UNHCR
Financia them from situations of social and
will foster the financial inclusion economic vulnerability and paving
of PoC, leading them to have their way towards self-reliance.
access to financial education, Consequently, these individuals will
bank services and microcredit. become vectors of economic change in
• Interiorization:
Interior ization: UNHCR will continue their communities, further supporting
to support the interiorization other persons of concern whilst
(relocation) programme and will contributing to local economies.
monitor interiorized persons’ progress
towards integration and self-reliance. ACKNOWLEDGEMENTS
Moreover, UNHCR will advocate
for the adoption of public policies The Livelihoods Unit Brazil acknowledges
designed to expand shelter capacity the contribution of numerous people to the
to host spontaneous arrivals. development of this Livelihoods Strategy.
• Education:
Educatio n: UNHCR will expand The strategy draws on the work of UNHCR
the number of academic diploma staff in Brazil as well as the partners
revalidations and will promote the that contributed to the drafting of this
access of PoC to superior education. document with their valuable feedback.
9
1. INTRODUCTION
© ACNUR/Victor Moriyama
1. I NTR ODUC TI O N
1.
in which UNHCR will scale up its assistance
to support governmental response.
This document describes a three-
year Livelihoods Strategy for the period
INTRODUCTION of 2019 to 2021. This Strategy’s rationale
is based on UNHCR main findings and
experiences collected through the last years
and mainly on a recent socio-economic
assessment of the refugee population,
This Strategy seeks to provide the necessary carried out during 2018. It is also based
support for our persons of concern on participatory assessments, information
(PoC) in order to secure access to socio- gathered from public databases, a value
economic opportunities that will lead to chain analysis and market assessment on
self-reliance and economic autonomy. livelihoods for refugees and migrants in
This support should be temporary aiming Brazil and UNHCR’s registration database.
to address initial obstacles that would The Strategy aligns with the Multi-
hamper socio-economic inclusion of our partner strategy (MYMP) developed
PoC in Brazil and to provide for long-term in 2017, which provides for our PoC to
sustainable livelihoods, allowing UNHCR to be targeted by national Governmental
responsibly disengage from its assistance socio-economic programs, thus gaining
activities. Self-sufficiency is a crucial step access to public services and enjoying the
towards achieving durable solutions. same rights local people are entitled. As
The fundamental approach of foreseen by the MYMP, an AGD approach
the strategy is to include PoC in public has been adopted by this strategy.
services and programs (in particular socio- Additionally to this Introduction, this
economic and employment programs) and Strategy is divided in the following sections:
to stimulate a friendly environment in the Background; Situation Analysis; Access to
private sector towards refugees and other Assets and Services; Current Livelihoods
PoC. Specific livelihoods interventions Interventions; Strategic Framework;
conducted by UNHCR and partners should Implementation Plan; Monitoring and
be residual, except in case of emergencies, Evaluation Framework and Annexes.
12LIV E LIH O O D S STRATE GY • 201 9 — 2021
© ACNUR/Victor Moriyama
132. BACKGROUND
© ACNUR/Victor Moriyama
2. B AC KGR OUND
2.
a rise in informality and self-employment in
the labour market, which are also side effects
of this economic crisis. Although there was
an increase of 5% in formal employment
BACKGROUND in Brazil during 2018, only 59.2% of
employed individuals work formally6.
In 2018, the Observatory for
International Migration (ObMigra)7 published
a report containing labour data and trends
Brazil is the biggest country of South in Brazil regarding foreign workers. The
America, with a population of 209,3 million document reveals numbers of employed
people3. As a Federative Republic, Brazil migrant workers that shows a small recovery
has three levels of government: Federal in the job market: from 127.166 in 2015, to
(national), State (26 states and the Federal 112.681 in 2016, reaching 122.069 in 2017.
District) and Municipality (over 5.000 The Brazilian economic success that
municipalities across the country’s territory). characterized the beginning of 2010s had
According to Brazil’s Institute for been a pull factor for immigration, which
Geography and Statistics (IBGE), 52.8 million boomed from 2010 to 2015. Haitians were
Brazilians lived with less than BRL 4064 per the main nationality of the new arrivals
month in 2017 (the minimum wage in 2017 reaching almost 100.000 individuals at the
was of BRL 937), 44.8% of which lived in the end of 2014. As a result, new approaches
Northeast, a total two million more than in to migration were adopted to face the
the previous year.5 Despite these numbers, increasing flows. In 2012, a humanitarian
Brazil’s economy shows apparent signs visa was established aiming to support
of recovery, although the economic crisis the Haitians, in 2014 for the Syrians and
persists. Unemployment rates have fallen in 2017 for Venezuelans, allowing them
from 13.7% in the first trimester of 2017, to to stay two years in the country and to
11.9% by the third trimester of 2018, and the enjoy the same rights as residents.
country’s GDP growth rates have risen from A legislative advance was reached
-2% in the first trimester of 2017 to 1.4% in the in 24 May 2017, with the sanction of a
second trimester of 2018. However, lowering new migratory law (Law 13.455) that
numbers of unemployment are attributed to overcame strict measures established by
the previous 1980 law introduced during
3 World Bank, 2018. Available at: https://data. dictatorial times. The new migratory law
worldbank.org/country/brazil?locale=pt established an migrant-friendly approach,
providing socio-economic rights for
4 In its calculations, IBGE adopts the baseline immigrants and refugees, and launched a
proposed by the World Bank, which considers to be new visa and residence migratory scheme
poor all of those individuals whose daily income is up
to US$ 5,50/day – which in 2017 was equivalent to BRL
406/month. 6 Information available at: http://www.brasil.gov.
br/noticias/emprego-e-previdencia/2019/02/mercado-
5 For more information, see: br/index.php/relatorio-anual p.113.
16LIV E LIH O O D S STRATE GY • 201 9 — 2021
© ACNUR/Brayan Carmona
allowing any foreigner, documented or with UNHCR’s support8 has shed light over
undocumented, to apply for a residence the socio-demographic and work profile
permit in Brazil, according to different of Venezuelans living in the city of Boa
migratory pathways established by the Law. Vista by interviewing 664 Venezuelans.
UNHCR is paying special attention Of the interviewees, 72% were between
to the Venezuelan population due to the 20 and 39 years old, 59.1% had no partner
ever-increasing influx of Venezuelans (including widowers and divorced persons)
coming to Brazil. In fact, from the 33.866 and 53.2% had come to Brazil with no
requests for asylum presented to Brazil`s family. In educational terms, 46.1% had either
Federal Police in 2017, 17.865 (approximately completed High School or not finished
53%) came from Venezuelan. This trend Superior Education whereas 31.9% had
continued in 2018 as by November completed some form of Superior Education
2018 51.433 requests for asylum were with either undergrad diplomas (28.4%)
introduced by Venezuelans, representing or postgrad certificates (3.5%). As for their
approximately 64% of the total 80.057 work experiences, 35.4% were unemployed,
asylum requests that had been presented to
Brazil`s Federal Police by December 2018. 8 SIMÕES, Gustavo da Frota et al. Perfil
A 2017 study commissioned by the Sociodemográfico e Laboral da imigração venezuelana
National Council for Immigration (CNIg) no Brasil. Curitiba: CRV, 2014.
172. B AC KGR OUND
31.7% were self-employed and only 28.4% Emergency Assistance9. As part of this
were employed. Of those who had found operation, the Army, alongside other Federal
some form of employment, only 47% Government`s Ministries, UNHCR and other
possessed an employment record book. UN Agencies, manages the Documentation
Approximately 52% worked more than 40 and Screening Center (PTRIG) in Pacaraima,
hours a week, 50.4% earned less than a a town bordering with Venezuela through
minimum wage and 29.7% had suffered some which most Venezuelans arrive in the
form of discrimination in their workplace. country and also another PTRIG in Boa
77% stated that they would be willing to be Vista. The Army is responsible for providing
relocated from Roraima if the government infrastructure, food and security to the
supported the process and nearly 80% 13 Reception centers set out in Roraima,
linked their willingness to relocate to the 9 of which are currently being managed
possibility of securing employment. by UNHCR and its implementing partners
The same study points that the Warao through a Cooperation Agreement signed
indigenous population sustains a gendered with Ministry of Citizenship. UNHCR
labour division where begging is mostly a registers and profiles all who wish to be
female activity and men mostly sell handicraft interiorized, mapping vacancies in shelters
and/or work informally. Many indigenous and supporting civil society to accommodate
children had little access to public education and to integrate them. Interiorization has
due to lacking documentation and three different modalities: “shelter-to-shelter”,
knowledge of the Portuguese language. The “employment based” and “family reunion”.
research points to indigenous persons living The program relies on the existence
on the streets, with little access to public of vacancies in public and private shelters
services, exposed to various vulnerabilities located in the receiving cities. Each shelter
such as violence and diseases. These provides up to three months of stay to
vulnerabilities were lessened by the work promote socio-economic inclusion and to
conducted by civil society, whose efforts create more vacancies for the continuation of
provided food and learning opportunities the reallocation program. Reception Centers
to children. Despite the difficulties faced are encouraged to have a work plan to foster
in Roraima, most indigenous persons income generation opportunities and self-
expressed little desire to be relocated. reliance for Venezuelans. In addition, UNHCR
Given the overburdening of the together with other UN Agencies is assisting
state of Roraima caused by the massive Venezuelans relocated from Roraima to other
influx of Venezuelans, UNHCR has been Brazilian states with Portuguese classes,
working alongside the Government of vocational training and access to employment.
Brazil (GoB) and other UN Agencies UNHCR directly supports shelters and
since April 2018 to find solutions and to integration activities implemented by
respond to the humanitarian crisis. The partners. Moreover, UNHCR is implementing
main response has been the relocation a CBI strategy in order to increase housing
of Venezuelans on a voluntary basis opportunities for relocated Venezuelans.
from Roraima to other states in Brazil, The profile of interiorized Venezuelans
commonly known as “Interiozação”. has been assessed by UNHCR through
The Brazilian Army is coordinating
the “Operação Acolhida” in Roraima by 9 Created by Law nº 13.684/2018, and regulated
delegation of the Federal Committee of by Presidential Decree nº 9.286/2018.
18LIV E LIH O O D S STRATE GY • 201 9 — 2021
a sample population of 1059 individuals, cashiers, receptionists and cleaners,
selected based on their age (18-59) which another 11% declared to have experience
makes them readily available for job market with sales, 11% have worked as cooks,
insertion. From this population, 60% were bakers or kitchen assistants, and another
male and 40% were female. 24% of the 9% have worked as entrepreneurs.
males completed Elementary School, 61% Data collected from 2017 released
completed High School, 5% completed by the National Committee for Refugees
Technical Studies and 9% finished some sort (CONARE) indicates an extremely diverse
of Higher Education. These individuals hold profile of recognized refugees living in
a higher level of education than the average Brazil represented by over 80 nationalities.
Brazilian, with 61% having completed their Amongst these, Syrians, Congolese,
high school studies against the 30.4% held Colombians and Palestinians were
by Brazilians as shown by IBGE’s 2018 predominant. By the end of 2017, 52% of
statistics.10 Females hold higher numbers of refugees were settled in São Paulo state,
completion of higher education compared 17% lived in the state Rio de Janeiro and 8%
to their male counterparts with 13%, but hold in the state of Paraná. In this sense, there’s
lower figures of completion of high school a concentration of refugees in southeast
studies with a representativeness of 51%. region of Brazil, the country’s wealthiest
Interiorized persons are mostly young region. By the end of 2017, of the 10.145
as nearly 46% have between 18 and 28 years recognized refugees living in Brazil, 70%
of age, and another 35% are between 29 and were identified as male, and 30% were
39 years old. These persons have travelled female.11 Another 1.081 individuals were
mostly in groups, with 88% of women and recognized as refugees by November 2018,
54% of males relocated alongside family reaching 11.226 recognitions by the GoB.
members. Family groups are predominantly Refugees’ profiles have been
composed by a focal point with 1-3 relatives assessed through a UNHCR commissioned
with an incidence of 57%. Approximately assessment on refugees’ socio-economic
46% of men were alone at the time of their baseline in Brazil that began in 2018, having
resettlement within the country, a figure conducted 487 in-site households interviews
that strongly contrasts with the 12% of with individuals in 14 different cities located
alone women. Their work experiences are in 8 different states across the country, of
varied. Some 26% of men declared to have which most are Syrian (153) and Congolese
worked as drivers, mechanics, cleaners (116). 88% had between 18 and 49 years of
and cashiers, another 23% claimed to age, nearly 96% lived in cities equipped with
have worked with construction, followed public services and 91% have claimed to have
by 10% that have worked as chefs, kitchen Brazilian friends. As for their educational
assistants and butchers, and other 8% had background, 50% had completed their high
worked as technicians. Approximately 20% school studies and 34% had concluded their
of women have worked as secretaries, superior education. Regarding employability,
nearly 58% had found some form of
employment and of these 68% worked
10 This number reflects the educational level
of individuals with 25 years of age or older, combining
the categories of completed high school education and 11 For more information see: http://www.justica.
unfinished higher education. Source: < https://cidades. gov.br/news/de-10-1-mil-refugiados-apenas-5-1-mil-
ibge.gov.br/brasil/pesquisa/45/77295> continuam-no-brasil/refugio-em-numeros_1104.pdf
192. B AC KGR OUND
© ACNUR/Victor Moriyama
in areas unrelated to their professional lived in rented homes, 7% owned their
background. 25% were out of the job market. residences and less than 2% lived in leased
Approximately 73% of all interviewees homes. 67% affirm to lack the financial
worked more than 40 hours per week12. means to cover their housing costs.
Of the 392 that provided information Although the Brazilian Refugee Law
related to their total household income, ensures refugees and asylum seekers
nearly 80% earn less than BRL3.000 (with the right to work, which presents a
30% of them earning less than BRL1.000), great advantage in terms of livelihoods
21% earn more than BRL3.000 and 4% programing, there are practical barriers
earn more than BRL5.000. Interviewees hampering PoC’s access to the labour
listed some barriers towards employment market. A market assessment on livelihoods
in Brazil, with 95 mentioning racism, 18 opportunities for refugees and migrants
referring to the lack of childcare services initiated in 2018, commissioned by the ILO
and 54 lacking documentation, whilst and conducted in collaboration with UNHCR
lacking financial resources was also by way of sampling in the cities of São
identified by 93 refugees as an obstacle Paulo, Boa Vista, Manaus and Porto Alegre
towards securing employment. Some 91% identified challenges faced by migrants,
asylum seekers and refugees that hamper
12 It is worth noting that the Brazilian Labour law
their ability to thrive in Brazilian cities. Access
establishes the weekly workload as a maximum of 44 to work is especially difficult due to the
work hours. economic instabilities in the country, PoC’s
20LIV E LIH O O D S STRATE GY • 201 9 — 2021
underdeveloped Portuguese language to Bolsa-Família, while 82.2% chose not to
skills, lacking availability and/or knowledge inform whether they had access to any social
of accessible vocational training, difficulties benefit which may indicate lack of awareness
in revalidating diplomas, untailored job of the existence of such programs.
placement agencies unaccustomed In terms of durable solutions, local
to dealing with PoC, decentralized job integration is predominant, and as of now,
placement systems across the country, and this is most likely the only way refugees
difficult access to childcare. Entrepreneurs` and asylum seekers may access long-term
ambitions are cut short by their unawareness sustainable solutions in Brazil. There were no
of the formalities of registering businesses, resettlements activities from and to Brazil in
and by regulatory restrictions that hamper 2018. For 2019, the GoB plans to receive up
their access to credit and microcredit, to 28 refugees from Guatemala, El Salvador
like as the requisitioning of documents and Honduras located in Panama. These
such as proof of permanent residence. resettlement offers are for family groups only.
Interviewees have complained of Presently, repatriation is not prioritized by the
difficult access to recruitment agencies´ operation given the continuing instabilities
services, which encourages informal job- in PoC´s countries of origin. However, given
search methods that are ineffective and the possibility of a peaceful resolution
often dangerous, particularly to women. to the political instabilities in Venezuela,
When these services are made available UNHCR might eventually engage in the
by NGOs, job offers are decentralized and voluntary return of Venezuelans by 2021.
uncoordinated, announced only when the UNHCR’s Brazil Operation has
offer is made available and on ad hoc basis. chosen programming interventions mainly
Interviewees demonstrated unawareness through implementing partners based on
of the existence of organizations capable of the following states: São Paulo (Cáritas,
capacitating them for market insertion such NGO Compassiva, NGO I Know My Rights
SENAC and SEBRAE, and of their labour - IKMR), Rio de Janeiro (Cáritas), Paraná
rights. There is also lacking information by (Cáritas), Rio Grande do Sul (Associação
the private sector on specificities pertaining Padre Antônio Vieira - ASAV), Distrito
hiring processes` for refugees and migrants. Federal (Instituto Migrações e Direitos
Regarding social assistance, refugees Humanos - IMDH), Amazonas (Cáritas),
are entitled access to the same social Roraima (NGO Federação Humanitária
programs as nationals, in special Bolsa- Internacional – FRATERNIDADE, Associação
Família. The main gateway to social benefits Voluntários para o Serviço Internacional
is the Social Single Registration (Cadastro (AVSI), Norwegian Refugee Council (NRC),
Único - CadÚnico). In 2018, there were IMPACT and Jesuítas - SJMR), and Aldeias
86.175 foreigners enrolled in CadÚnico and Infantis in different states. Recently, new
36.375 were entitled access to Bolsa-Família. UNHCR implementing partners started
Similarly to employment, however, although supporting the Operation, such as
Brazilian law does not pose any legal barriers ADRA, Missão Paz and Instituto Mana.
that block access to social assistance, there Aldeias Infantis, Caritas São Paulo,
are practical impediments to the enjoyment Caritas Rio de Janeiro, Caritas Paraná,
of this right. The abovementioned 2018 ASAV, Caritas Manaus and IMDH have been
socio-economic assessment of recognized receiving UNHCR funding to implement
refugees indicates that only 14.7% had access its CBI strategy. These organizations
212. B AC KGR OUND
have been providing multi-purpose cash than 9.300 people were benefited by the
assistance (MPG) to satisfy basic needs cash assistance program in the country.
and other types of cash assistance for Additionally, by April 2019, UNHCR
specific needs to the most vulnerable PoC. has supported more than 260 relocated
In 2018, 3.229 MPGs were given to 4.116 Venezuelans through the “Employment
beneficiaries. In Manaus, 266 interiorized based” modality13, with one-off cash grants
Venezuelans families received CBI in order to help them with first need expenses
to pay for their rent and for their household during the first month in the new city,
supplies and expenses. In total, more before receiving their first salary.
13 This modality relocates Venezuelans to cities
throughout Brazil where they have been offered job
opportunities.
22LIV E LIH O O D S STRATE GY • 201 9 — 2021
© ACNUR/Diogo Felix
233. SITUATION ANALYSIS
© ACNUR/Victor Moriyama
3 . SI TUATI ON A N A LY S I S
3.
employment and another platform called
“Escola do Trabalhador” which offers
online vocational trainings free of charge.
The role of the Employment Agencies
SITUATION remains important, as it is in these agencies
that, in theory, the worker receives guidance
ANALYSIS on how to be prepared for a job interview,
his/her rights and duties, and a letter of
referral to the employer, making the process
more reliable. The system has about
1.600 stations throughout the country.
3.1. WORK IN THE COUNTRY OF ASYLUM
However, experience has shown
that, with refugees, these agencies are
The Brazilian Refugee Law (Law n.
mostly unprepared to deal with the job
9.474/97) provides for both refugees and
demands, be it in reason of linguistic,
asylum seekers the right to access legal
cultural and administrative difficulties, or
employment. However, there are barriers that
due to the lack of training and employee
hamper the access of refugees to the labour
awareness. In this sense, the Livelihoods
market, in addition to the other challenges
Unit has been operating to expand some
existing for the entire Brazilian population.
of these agencies’ capacities so they may
The main document to access work
better assist PoC, as it is the case with São
is the work permit and social security card
Paulo’s CAT Luz Employment Agency.
(CTPS), which is accessible to refugees
Private Employment Agencies are
(with the presentation of a foreigner’s
common and used by most workers with
identity card) and asylum seekers (with the
medium or high qualification. Some of
presentation of the provisional protocol).
these Agencies are UNHCR partners and
According to the Decree n. 9.277/2018,
have had some success in securing jobs
asylum seekers will have access to a
for refugees, such as the “RH Project”
provisional identity card, facilitating not
Agency. However, they are mainly online
only the access to work permit, but also
platforms in which the refugee registers
eliminating the suspicions that many
and accesses job vacancies without
businesspersons had with the fragility of the
receiving any preparation for the labour
provisional protocol as an identity document.
market. In addition, other organizations
Public job placement services are
also engage in job referral activities,
done exclusively by states and municipalities
enhancing the chances of PoC finding
in accordance to the Ministry of Economy’s
employment, such as PARR (Programa de
guidelines. The National Employment System
Apoio para a Recolocação dos Refugiados).
(SINE) is responsible for coordinating states’
Technical qualifications in Brazil are
and municipalities’ various initiatives, and,
mainly carried out by the “S” System, which
through this system, Public Employment
are semi-private institutions that receive
Agencies spread across the country
funding from private companies. The main
become connected. The Ministry of
institutions are SENAI (industry), SENAC
Economy has one online platform called
(Commerce), SENAT (Transportation) and
“Emprega Brasil” (Hire Brazil), to facilitate
26LIV E LIH O O D S STRATE GY • 201 9 — 2021
© ACNUR/Alan Azevedo
SENAR (Agriculture). These institutions they also provide consulting to small
map annually companies’ demands for entrepreneurs. SEBRAE is a vital partner
professionals by economic sectors and that has been supporting the training
plan the availability of courses. There is a of many refugee entrepreneurs.
quota of free of charge courses that these To access employment, refugees and
institutions may offer. In addition, there are asylum-seekers need the work permit and
other institutions that offer private vocational social security card (CTPS), which for asylum
courses, including several Workers’ Unions. seekers is valid for one year (which is the
The “S” System poses excellent same expiration date for the provisional
opportunities for refugees because it offers protocol of the asylum claim). However, both
vocational courses, as well as Portuguese documents are renewable for successive
classes for foreigners. It is crucial for periods of one year until CONARE’s decision
UNHCR that partnerships with the “S” is made. Both asylum seekers and refugees
System institutions are established in states have access to unemployment insurance in
with a greater presence of refugees so Brazil. This benefit is accessible to those who
they can access free courses. SEBRAE is have worked in the formal labor market for at
the semi-private institution that supports least 18 months over a period of 24 months,
the development of entrepreneurship in in the amount of one to three minimum
Brazil. They have agencies throughout wages paid between three and five months.
the country and, besides offering courses, This benefit represents an important buffer
273 . SI TUATI ON A N A LY S I S
against the impacts of unemployment and Nonetheless, an explanatory note14 expedited
it is a source of livelihood while refugees by the Federal Revenue Office in 2016,
and asylum seekers look for another job. clarifies the complexities of hiring asylum
The Brazilian Labour Law establishes seekers affirming that these individuals are
a series of rights for waged workers, such eligible to be registered in the platform.
as annual paid leave with ⅓ more than Being able to access information
the salary, weekly paid rest, preferably on rights and duties is crucial to refugees,
on Sundays, 13º salary (payment of an because unawareness of their rights makes
extra salary to the worker at the end them more vulnerable to exploitation
of the year), and protection against processes on the labour market. It is of
accidents and occupational diseases. great importance that they look for unions
All waged workers are compulsorily of their professional categories and for
enrolled in Social Security, making Offices of the Ministry of Economy to
monthly payments to the social security receive orientation and, in cases of rights
system. The companies also contribute violations, to be able to file complaints
to the maintenance of the system. While before Offices of the Ministry of Economy
insured by Social Security, the worker will and before the Labour Prosecutors’ Offices
be protected and will be able to receive or even alongside Workers’ Unions. In
benefits such as disability insurance, work- any case, the worker can seek the Labour
accident insurance and retirement due to Justice to initiate a judicial action against the
disability or contribution/age. Given the company that supposedly violated the rights
existing guarantees, the access to the (including of refugees and asylum seekers).
formal labour market for refugees and Self-employment can be characterized
asylum seekers who have a profile for by informal workers and/or autonomous
waged employment is very important. workers, by individual service providers,
However, securing employment cooperative workers, workers in a solidarity
through companies can be challenging for economy system (self-management of
PoC and migrants, as companies tend to companies, collective work system) and
be cautious when hiring these individuals individual micro-entrepreneurs (MEI).
due to fear of being penalized for failing Informal workers are not governed by
to comply with hiring processes such as Labour Laws and do not enjoy the same
the eSocial. This platform’s design allows rights of those formally employed. However,
for businesses to inform the government they may access social security benefits
of their tax, pension and labour-related if they contribute to Social Security.
responsibilities, and it ensures that Refugees mainly engage in informal
companies register the employee, providing work due to the difficulties associated to
the PoC´s personal information such finding formal jobs. Nonetheless, despite
as name, ID number and date of birth. of the difficulties and risks associated with
However, employers cannot register
asylum seekers (holders of Refuge Protocol
ID) in the eSocial Platform because their 14 Treasury Ministry/ Federal Revenue Office
(Ministério da Fazenda / Receita Federal). “Non-
identification number is longer than that
acceptance of Refuge Protocol for enrollment in
of nationals. This impossibility to register Esocial” (Não aceitação do Procoloco de Refúgio para
IDs leads employers to believe that they cadastramento no Esocial). Nota Digid/Cofis nº 105, 21
are not allowed to hire asylum seekers. November 2016.
28LIV E LIH O O D S STRATE GY • 201 9 — 2021
self-employment, refugees who have an employment in their original professional
entrepreneurial profile tend to become areas. Failure to validate their diplomas and
self-reliant. Those who work in cooperatives technical certificates and also the difficulty
or as self-employed can achieve the to enroll in professional counselling services
same outcome if they have proper are major obstacles for PoC to access a
managerial skills. Thus, training refugees proper job. Formal employment for women is
on self-employment is important, whether especially difficult, because they cannot be
autonomous, cooperative or entrepreneur. inserted in many occupations held by men
It is of fundamental importance for that rely on one’s physical strength. Many
the success of our actions to systematically end up working with household related jobs
collect information on the labour market. as others find jobs in commerce and services
UNHCR has been approaching Sergio Vieira sectors. Women’s work opportunities often
de Mello Academic Consortium (SVMAC) and expose them to additional vulnerabilities,
ObMigra in search for partnerships so that it particularly when involving domestic work,
has permanent information on developments where their labour rights are not respected
on the labour market for refugees by and where in some situations, they are
crossing information between existing subject to sexual harassment. Although
systems.15 Moreover, UNHCR is supporting domestic work has been regulated by
a socio-economic assessment of asylum- Complementary Law n. 150/2015, which
seekers that is being conducted by IPEA equates the rights of domestic workers
(Instituto de Pesquisa Econômica Aplicada). to other workers, this sector still has high
The formal jobs for refugees and rates of informality and people who work
asylum seekers in Brazil generally have a in it remain subject to abuse. Women
low professional profile, leading PoC to take with children face an additional barrier in
up positions in the sectors of cleaning and integrating to the job market as the access
maintenance, construction, as production to free childcare services is very limited.
line operators, as attendants in restaurants Many PoC work in the informal market
and in trade. Furthermore, some specific without access to labour rights, especially
sectors have specialized in hiring foreigners, as street vendors. In such situations, they
such as animal slaughterhouses. sustain low incomes, being subject to
The majority of refugees and greater occupational hazards (especially
asylum seekers with high educational accidents) and, in cities with no regulation
and professional qualifications do not find that allows one to work on the streets, being
subject to having their goods seized by
the government. MEI brought guarantees
15 SVMAC (Sérgio Vieira de Mello Academic
to informal workers by enabling vendors
Consortium) is implemented by UNHCR in cooperation
with Brazilian Universities and CONARE (National
to be registered, which requires paying
Committee for Refugees). In this cooperation agreement a small monthly fee and it allows for one
with the two institutions, UNHCR establishes a Term of to become insured by the Social Security,
Reference with objectives and responsibilities for the accessing benefits such as sick leave.
insertion of three lines of action: education, research Many refugees and asylum seekers
and extension. In addition to promote university-level
who often have higher professional
education on refuge-related issues, the Chair also aims to
promote academic training for professors and for students
qualifications become entrepreneurs when
on the same topic. Direct work with refugees on projects is unable to access formal employment in
also defined as a high priority of these partnerships. their previous occupations, especially with
293 . SI TUATI ON A N A LY S I S
gastronomy, in restaurants specializing in São Paulo is the richest state in
typical cuisine from their countries of origin. Brazil, responsible for 31,9% of the national
This is most evident amongst Syrians. GDP (IBGE 2017). The city of São Paulo
contributes to 11% of the national GDP and
3.2. LIVELIHOOD ZONES it has a diversified economy composed by
industrial activities, being the manufacture of
Data released by CONARE (2017) shows food products the leading activity, followed
that from the 10.145 refugees, 52% lived by chemical, petroleum and biofuels,
in São Paulo state, 17% lived in Rio de automotive, machinery and equipment
Janeiro state and 8% resided in the state production; storage and logistic services;
of Paraná. Venezuelan mainly cross the civil construction, commerce and a well-
border through Roraima state, where most established touristic industry. This variety
are currently concentrated. There is also a translates into abundant work opportunities
high number of Venezuelans living in the to our PoC, whether in industries, the
city of Manaus, with nearly 11.500 requests provision of services or in general commerce.
of asylum before the Federal Police. Rio de Janeiro, the country’s second
As the refugee, asylum seekers largest GDP, had its economy shrunk by 2.2%
and Venezuelans populations are mainly in 2017. The Industrial and Service economic
concentrated in the Southeast (mostly in sectors shrunk considerably in the period,
São Paulo and in Rio de Janeiro) and in the to a total of 1,2% and 3,7% respectively.
North (primarily in Boa Vista and in Manaus), These sectors represented 76.2% and
this Strategy will focus predominantly in 23.3% of Rio de Janeiro’s GDP. Moreover,
these regions. Detail on these locations´ it should be stressed that three Industrial
economy and job market is provided below. subsectors had a good performance at the
© ACNUR/Victor Moriyama
30LIV E LIH O O D S STRATE GY • 201 9 — 2021
year, namely, Mining (+3.2%), Manufacturing
(+4.8%), and Energy (+2.9%), and only Civil
Construction reported a decrease of 9.4%16.
Roraima has one of the lowest GDP
amongst states, with a productive base
composed mostly by agriculture, cattle
raising and extractivism. Because Boa
Vista’s population corresponds to two-
thirds of Roraima, it holds most of the
provision of public services and employment
opportunities. Public administration
represents over 50% of the labour
market, followed by commerce, service
sector, industry and farming activities.
Finally, Manaus is the capital of the
state of Amazonas and the main urban,
financial and industrial center of the Northern
Region of Brazil. It is the most populous city
in the Amazon, with more than 2 million
inhabitants, with a significant impact on
tourism, education, finance, industry, media,
research, technology, and entertainment
throughout the region, receiving a regional
metropolis classification. Manaus has a
great potential for labour insertion in the
sectors of commerce and of services, mainly
in tourism, hotels and food. Moreover,
this potential is enhanced by the growing
Manaus Free Trade Zone, conceived as
a free import and export trade area with
special tax incentives, which is an important
economic force in the Amazon region.
16 Fundação Cerperj. Produto Interno Bruto do
Estado do Rio de Janeiro. PIB do Estado do Rio de Janeiro
caiu 2,2% em 2017. Available at: http://www.ceperj.rj.gov.
br/ceep/pib/pib.html. Accessed on 08 March 2019.
313 . SI TUATI ON A N A LY S I S
3.3. LIVELIHOODS GROUPS AND ASSETS
REFUGEE AND ASYLUM-SEEKER POPULATION
Strengths Weaknesses Opportunities Threats
Market assessments indicate
great opportunities for refugees in
Refugees are predominantly the hospitality sector in São Paulo.
young. 88% of interviewed The Hospitality Job Market
refugees were between is expected to have the
18-49 years old. greatest growth for 2019
Little knowledge over the
Refugees are educated: 50% (ILO/UNHCR study).
Brazilian labour Market. High rates of unemployment
have concluded their High Cities hosting most refugees and informality in the
School studies and 34% have 20% of interviewed refugees
offer many opportunities market which can lead
concluded their university were unemployed
for entrepreneurs (e.g. São to exploitation of PoC.
education (interviewed refugees). Nearly 22% of interviewed Paulo and Rio de Janeiro).
Fail and loss of investments
Nearly 90% of interviewed refugees wished to study
Companies are increasingly by refugee entrepreneurs.
refugees are at least bilingual, in Brazil but lacked the
adopting policies of diversity
speaking Portuguese in addition financial resources to do so. 20% of interviewed refugees
Human in their hiring processes.
to their native language. reported that xenophobia
Only 14 of Refugees have
Assets Use of CBI to support education affects their job searches.
84% of interviewed refugees managed to revalidate
and entrepreneurship of PoC.
wish to remain in the country. their diplomas Bureaucracy on diploma
Expanded funding to NGO revalidation and
57.5% of interviewed refugees Lack of financial access
Compassiva for increased difficulties in accessing
have secured some form of work. hampers the access to
diploma revalidation rates. professional boards.
vocational training.
79% of interviewed refugees are SVMAC provides PoC CONARE`S extensive backlog
keen to become entrepreneurs. 19% of interviewed refugees
with opportunities related in its RSD decisions forces
lack financial resources to
According to partners with job to education, legal PoC to wait excessively
seek jobs through agencies.
referral services, hiring companies services and health. long periods to receive
report lower turnover rates by Difficulties with the language a final decision.
High number of NGOs
refugees compared to nationals. for Asylum seekers
working with PoC
PoC are flexible to adapt Local Committee of Migrants
their preferences to engage and refugees – increasing
in low skilled jobs. engagement of local governments
on the design of polices
towards this population.
32LIV E LIH O O D S STRATE GY • 201 9 — 2021
Strengths Weaknesses Opportunities Threats
Participation of Community
councils in cities`
administrations (e.g. SP)
81% of the interviewed refugees Refugees and immigrants
claimed to have Brazilian friends. NGOs initiatives that promote are not allowed exercise
bonding activities to familiarize political rights in Brazil.
92% of the interviewed refugees
Cultural difficulties in Brazilians and refugees with
classified their communication Rising nationalism and
adapting to Brazilian realities. each other (e.g. Refugee
in Portuguese as satisfactory. xenophobia across
Cup and Thematic Fairs)
Lack of information related the country.
Social & Many interviewed refugees
to access and existence of New migration law entitled
Political Assets have cited social networks Insecurity and violence
public social services and migrants and refugee to
within their communities. in urban contexts.
public social assistance. freedom of association.
Existence of organized groups Xenophobia and/or lack
Lack of Brazilian New policy from Ministry
for rights movements and to of knowledge by civil
networking for Asylum of Citizenship promoting
influence public policies. servants related to refugee
seekers new arrivals the establishment of
law hinders the access of
Existence of networks Reception Centers targeting
refugees to public services.
gathering friends usually Migrants and Refugees
from the same nationality
PoC are entitled access to public
services and social assistance
policies equally to Brazilians.
High bank fees for
financial operations.
Requisition of proof of
residency constitutes
The financial services offered
an impediment towards
by the Banco do Brasil allow for
access to Bank services.
PoC to open savings accounts.
Continuity of the
25% of interviewed refugees Banks, such as Santander, have
economic crisis and high
were not working. expressed interest to offer micro
unemployment rate
loans for refugee entrepreneurs.
80% of refugees` household Risk of contracting debt due
income is less than New Decree for Asylum
to high interest rates in Brazil
80% of interviewed refugees 3000,00 BRL/month. Seekers ID establishes
have bank accounts right to bank services. The lack of clear guidelines
67% of interviewed by the Central Bank on
7% of interviewed refugees have refugees affirm to lack the Institutions such as CrediPaz
lending microcredit to asylum
attained full economic self- financial means to cover reported that refugees and
seekers leads financial
reliance, allowing them to have their housing costs. migrants are among their most
institutions to demand
Financial ownership over their homes reliable clients on micro-
Nearly 70% of interviewed that internationals hold a
Assets credit loans (ILO&UNHCR
21% of refugees` household refugees send money to RNM (National Migratory
Market Assessment).
income is greater than BRL3.000 their families abroad. Registration) document to
and 4% earn more than BRL5.000. New UNHCR partnership with access to it. (ILO&UNHCR
Asylum seekers have FSP will enhance financial Market Assessment).
91% of interviewed refugees difficult access to banking inclusion for CBI beneficiaries
live in rented homes. services, and access Lack of access to information
by providing prepaid cards.
to savings account is on how to register as a micro
even more difficult. Refugees and nationals entrepreneur coupled with
have equal access to public strict regulatory measures
Lacking education on programs of cash transfer. that demand an income
finance management. tax return document
UNHCR´s CBI strategy offers
encourages performance
PoC an opportunity to cover
in informality thus exposing
basic needs and to invest in
PoC´s businesses to
their entrepreneurial activities
risks associated with this
irregularity. (ILO&UNHCR
Market Assessment).
333 . SI TUATI ON A N A LY S I S
19% of interviewed refugees
share their homes with Municipalities are actively
Most of refugees live 5 to 9 individuals. engaged with creating
in cities equipped with
High costs of housing policies aimed at providing
basic public services and
Physical (rent) and transportation shelter to individuals in Risk of living on the streets
adequate infrastructures.
Assets in big cities. situation of vulnerability. or in shanty houses.
70% of interviewed refugees
Lack of public policies Engagement with committees
live in rented homes and 6% of
by municipalities on that design policies aimed at
refugees own their houses.
sheltering individuals in integrating migrants and refugees.
situation of vulnerability.
VENEZUELAN POPULATION
Strengths Weaknesses Opportunities Threats
Language skills to work in
the Hospitality Job Market
Venezuelans POCs are mostly
which is expected to have the
young: 81% of interiorized
greatest growth for 2019.
Venezuelans have between
18 and 39 years of age. 64% of Venezuelans were High rates of unemployment
relocated to cities in the and informality in the
72% of Venezuelans interviewed
South and in the Southeast job market which can
had between 20 and 39 years
of Brazil, whose strong lead to exploitation of
of age. (UNHCR and 2017
economies offer many work- Venezuelan workers.
Venezuelans socio-demographic
related opportunities (e.g. São
research respectively) Xenophobia impact
Lack of knowledge over Paulo and Rio de Janeiro).
Interiorized: 57% have completed the specificities of the access of Venezuelans
Companies are increasingly to the labour market.
their High School education, Brazilian Labour Market.
Human adopting policies of diversity
and another 11% have completed Work with low remuneration
Lack of financial access in their hiring processes.
Assets their higher education. hampers their capacity to
hampers the access to
Potential use of CBI to support provide for their household.
Of the Venezuelans interviewed, vocational training
Venezuelan job-market
46.1% had either completed High 28% rate of formal
Venezuelans´ professional insertion and self-reliance.
School or incomplete Superior employment for
and academic qualifications
Education and 31.9% had Expanded funding to NGO Venezuelans in Boa Vista.
are not recognized in Brazil
completed some form of Superior Compassiva for increased
Education (2017 Venezuelans diploma revalidation 50% of interviewed
socio-demographic research) rates of Venezuelans. Venezuelans in Boa
Vista earn less than
Nearly 60% of Venezuelans had Companies are becoming one minimum wage.
a source of income (employment increasingly sensitize about the
and self-employment) and Venezuelan situation and are
14.6% wished to become offering jobs for Venezuelans
entrepreneurs (2017 Venezuelans
New modality of interiorization
socio-demographic research)
based in job offers for
Venezuelans living in Roraima
34LIV E LIH O O D S STRATE GY • 201 9 — 2021
Strengths Weaknesses Opportunities Threats
Strengthened social networks
(Churches, Community Refugees and migrants
Groups etc.) that result in may not exercise political
better livelihood outcomes. rights in Brazil.
Projects that promote Rising nationalism and
peaceful coexistence between xenophobia across
Communication in Portuguese the country.
Venezuelans and Brazilians
is easier than for most PoC.
Lack of information related (e.g. food fairs, Manaus race) Insecurity and violence
Interviewed Venezuelans in Boa to access and existence of in urban contexts.
New migration law entitled
Vista have cited the existence public social services and
migrants and refugees to New labour/contractual
of social networks (which public social assistance.
freedom of association. legislation.
helps with word of mouth job
Partners such as PARR
opportunity advertisement). Interest by the National Xenophobia and/or
and Compassiva have
(2017 Venezuelans socio- Confederation of Municipalities lack of knowledge by
stressed PoC’s lack
Social & demographic research). (CNM) to support the civil servants related to
of networking in the
Political Assets relocation of Venezuelans. migration law hinders the
Fewer difficulties in adapting professional environments.
to cultural realities in New policy from Ministry access of Venezuelans
Despite government´s efforts to public services.
Brazil compared to non- of Citizenship promoting
to relocate Venezuelans
South Americans. the establishment of Lack of reception centers
from Roraima, there is a
Reception Centers targeting to shelter Venezuelans
PoC are entitled access to public limited number of shelters
Migrants and Refugees out-of-Roraima.
services and social assistance in other cities. Moreover,
policies equally to Brazilians. spontaneous interiorized Existence of reception centers Low engagement of
Venezuelans cannot access in Roraima and in other Municipalities in receiving
Existence of Venezuelans
most of these shelters. Brazilian cities which aims Venezuelans relocated
associations joined by new
to shelter Venezuelans. from Roraima
arrivals and/or previous diaspora.
Existence of the voluntary Risk of becoming victims
interiorization program aiming of human trafficking as
to relocate Venezuelans form well as other forms of
Roraima to other Brazilian exploitation due to their
states which better economic situation of vulnerability
integration prospects.
353 . SI TUATI ON A N A LY S I S
Strengths Weaknesses Opportunities Threats
High Bank fees for
financial operations.
Lack of proof of residence
hinders access to
Bank services.
Most employment Continuity of the
opportunities come from economic crisis and high
the informal sector which unemployment rate.
tends to offer lower and
unreliable wages (often less Risk of contracting debt due
than a minimum wage). to high interest rates in Brazil
The financial services offered The lack of clear guidelines
100% of Venezuelans in Boa
by the Banco do Brasil allow for by the Central Bank on
Vista send money back to
PoC to open savings accounts. lending microcredit to
Venezuela and 50.4% of
interviewed Venezuelans New Decree for Asylum Venezuelans leads financial
38.7% of interiorized Venezuelans receive less than a minimum Seekers ID establishes institutions to demand
Financial monitored by UNHCR have right to bank services. that internationals hold a
wage for their work (2017
Assets managed to secure employment RNM (National Migratory
Venezuelans socio-
New UNHCR partnership with Registration) document to
(by December 2018) demographic research)
FSP will enhance financial access to it. (ILO&UNHCR
Limited access to inclusion for CBI beneficiaries. Market Assessment).
banking services.
UNHCR´s CBI strategy offers Lack of access to information
Lacking education on PoC an opportunity to cover on how to register as a micro
finance management. basic needs and to invest in entrepreneur coupled with
their entrepreneurial activities strict regulatory measures
Scarce economic
assets when they arrive that demand an income
in the country. tax return document
encourages performance
Lack of financial assets in informality thus exposing
leads Venezuelans to Venezuelans businesses to
sustain heavy workloads. risks associated with this
irregularity. (ILO&UNHCR
Market Assessment).
Informal means of financial
transfer to Venezuela impose
risks of loss of assets.
Venezuelans are relocated High costs of housing
(rent) and transportation Municipalities are actively
to cities equipped with
in big cities. engaged with creating
basic public services and
policies aimed providing
adequate infrastructures. Shortage of vacancies
Physical shelter to individuals in Risk of living on the streets
Interiorized Venezuelans have in public shelters situation of vulnerability.
Assets or in shanty houses.
temporary access to shelter Venezuelans are living Engaging with committees
(maximum of 3 months) provided in the streets in Roraima that design policies aimed
by either UNHCR`s partners, and Manaus due to lack at integrating migrants.
municipalities or NGOs. of access to housing
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