(Data collection by Matt McBurney, Gloria Novovic, Dianna Roman, and Edward Koning. When referring to this page, please use the following citation: Koning, E.A., McBurney, M., Novovic, G. & Roman, D. (2024). The IESPI Database – Malta country report. University of Guelph, www.iespi.ca/malta/.)
Tax-paid pensions
| TP1A | Residence requirement for complete universal tax-paid pension |
| 1990-2023 | -8 (no universal public pension) |
There is no universal public pension in Malta. The only tax-paid pension is means-tested.
| TP1B | Residence requirement for access to pro-rated portion of universal tax-paid pension |
| 1990-2023 | -8 (no universal public pension) |
There is no universal public pension in Malta. The only tax-paid pension is means-tested.
| TP2 | Residence requirement, means-tested supplement |
| 1990-2004 | 100 (unavailable) |
| 2005-2023 | 58-88 (5 years for EU nationals, unavailable for others) |
While there are no formal residence requirement for accessing the means-tested benefit, it is exclusively available to citizens and, since 2005, EU nationals who have obtained permanent residence status (which comes with a five year residence requirement). Since citizenship can only be acquired by family members of Maltese citizens, humanitarian migrants, and those who invest in the Maltese economy (who would not meet the means test), and only at the discretion of the Minister of Foreign Affairs, the benefit is in practice inaccessible to migrants from outside the EU (Government of Australia 2024, Government of Malta 1964, 1987, Identity Malta Agency n.d., Vassallo 2009). Scores on this indicator for the period 2005-2023 are weighted to account for the proportion of EU migrants using data on the inflow of immigrants by broad citizenship category from the National Statistics Office of Malta. Extrapolation used for missing data.
| TP3 | Status requirement for access to tax-paid pension |
| 1990-2004 | 100 (only citizens) |
| 2005-2023 | 90 (citizens and privileged nationals) |
Before Malta joined the EU, the means-tested pension was only available to citizens. Since then, EU citizens are able to access it as well (Government of Australia 2024, Government of Malta 1964, 1987, Identity Malta Agency n.d., Vassallo 2009).
| TP4 | Export possibilities, universal tax-paid pension |
| 1990-2023 | -8 (no universal public pension) |
There is no universal public pension in Malta. The only tax-paid pension is means-tested.
Health care
| HC1 | Residence requirement |
| 1990-2001 | 100 (tied to permit requiring five years of residence) |
| 2002-2023 | 0 (no residence requirement) |
Before 2001, the only foreign nationals who could access public health care were those with permanent residence status, which requires at least 5 years of residence. Since then, all employed foreigners are immediately covered as soon as they take up employment (EMN 2014, Gauci 2010, Government of Malta 1987, 2013).
| HC2 | Status requirements |
| 1990-2001 | 80 (citizens and permanent residents) |
| 2002-2004 | 40 (citizens, permanent residents, some categories of temporary migrants) |
| 2005-2023 | 30 (citizens, permanent residents, privileged nationals, some categories of temporary migrants) |
Until 2001, access to public health was reserved for Maltese citizens and permanent residents. As a result of directive 2001/98, access has been broadened to recognized refugees, employed residents, and, since Malta joined the EU, EU nationals (Government of Malta 1987, 2013, OECD 2021).
| HC3A | Public health care available to asylum seekers |
| 1990-2015 | 83 (emergency care and urgent care) |
| 2016-2023 | 50 (basic services covered in reception centers) |
Before 2015, almost all asylum seekers in Malta were detained upon arrival for 18 months. During this time period, they technically had access to basic health services, but the quality and availability over these services have been frequently criticized. Since 2015, asylum seekers who are considered ‘regular entrants’ receive basic health care services in asylum reception centers (Aditus 2023a, Government of Malta 2005, Luhmann et al. 2007).
| HC3B | Public health care available to undocumented migrants |
| 1990-2023 | 83 (emergency care, in detention centers) |
Undocumented migrants cannot access health care in Malta, unless they have been identified by the authorities and placed in detention centers. There they can receive urgent care, although, again, the quality of the health care services have often been criticized (DeBono 2013, Cuadra 2010, 2011).
| HC4A | Accessibility services, translation services |
| 1990-2008 | 100 (nothing available) |
| 2009-2023 | 67 (translation services occasionally available in some languages) |
Malta did not offer any health care accessibility services until 2008, when the Department of Health establish a Migrant Health Liaison Office. This office provides translated materials and can help patients with low proficiency in English or Maltese receive translation services, although the availability of such services is far from guaranteed (Government of Malta 2020, n.d., UNHCR 2013).
| HC4B | Accessibility services, other attempts to increase uptake |
| 1990-2008 | 100 (no services) |
| 2009-2023 | 0 (culturally sensitive care providers available in at least some instances) |
One of the tasks of the Migrant Health Liaison Office is to encourage the delivery of culturally competent health care, for example by running training programs for cultural mediators (Government of Malta 2020, n.d.-a, UNHCR 2013).
Contributory pension benefit
| CP1 | Minimum contribution years |
| 1990-2004 | 50 (10 years) |
| 2005-2016 | 22-40 (10 years, EU nationals can aggregate) |
| 2017-2023 | 26-50 (12 years, EU nationals can aggregate) |
Access to the contributory pension has required a minimum contribution period of 10 years until 2016, when it was increased to 12 years. Since Malta joined the EU, EU migrants can count contributions in their country of origin in determining eligibility (Department of Social Security n.d.-a, OECD 2009a, Vella 2020). Scores on this indicator for the period 2005-2023 are weighted to account for the proportion of EU migrants using data on the inflow of immigrants by broad citizenship category from the National Statistics Office of Malta. Extrapolation used for missing data.
| CP2 | Status requirements |
| 1990-2004 | 100 (citizens, permanent residents) |
| 2005-2023 | 80 (citizens, permanent residents, privileged nationals) |
Only those migrants who can meet the contribution requirements are de facto eligible for the contributory pension. Most temporary migrants are not, because they are not permitted to stay long enough. Non-deportable asylum seekers are eligible to take up employment but they are barred from the pension system even if they meet the contribution requirements (EMN 2014, Government of Malta 1987, Nimführ 2016).
| CP3 | Export possibilities |
| 1990-2004 | 63-98 (only possible to bilateral agreement countries) |
| 2005-2023 | 0 (export possible without restrictions) |
Before Malta joined the EU, the contributory pension was exportable only to countries with which Malta had signed a bilateral social security agreement (Libya in 1988, Canada in 1991, and the United Kingdom in 1995). Since then, the benefit has been payable anywhere in the world (Government of Malta 1987, n.d.-b, Spiteri Gingell 2015). Unfortunately, there are no data available on the number of migrants from these countries over time. The scores for the period from 1990-2004 are weighted by the proportion of foreign citizens from bilateral agreement countries according to the 2011 census.
Contributory unemployment benefits
| CU1 | Minimum contribution weeks |
| 1990-2004 | 48 (50 weeks) |
| 2005-2023 | 21-40 (50 weeks, EU migrants can aggregate) |
Access to contributory unemployment benefits has required a total of 50 weeks of contributions throughout the period under study. Since Malta has joined the EU, EU migrants have been able to count their work history in other member states in determining eligibility (Department of Social Security n.d.-b, Government of Malta 1987). Scores on this indicator for the period 2005-2023 are weighted to account for the proportion of EU migrants (coding them as facing no minimum contributory requirements) using data on the inflow of immigrants by broad citizenship category from the National Statistics Office of Malta. Extrapolation used for missing data.
| CU2 | Status requirements |
| 1990-2004 | Status requirements |
| 2005-2023 | 50 (citizens, permanent residents, long-term work permit holders) |
Only citizens, permanent residents, long-term work permit holders, and, since Malta joined the EU, EU nationals are able to take up unemployment benefits if they fall unemployed. International students are barred from unemployment benefits even if they meet the contribution requirements. Denied asylum claimants who cannot legally be deported are similarly excluded (Cuadra 2010, Government of Malta 1987, Nimführ 2016).
| CU3 | Integration requirements |
| 1990-2023 | 0 (no integration requirements) |
There are no integration requirements associated with accessing contributory unemployment benefits.
| CU4 | Export possibilities |
| 1990-2004 | 100 (not possible) |
| 2005-2023 | 61-81 (up to six months within EEA, not possible elsewhere) |
Unemployment benefits are generally not exportable. However, since Malta joined the EU recipients have been able to retain their benefit when searching for a job in a different member state of the EEA for a period of up to 6 months (De Wispelaere et al. 2020, EMN 2014). Scores from 2005 onwards have been weighted to account for the proportion of EU migrants using data on the stock of foreign-born individuals by broad citizenship category from the National Statistics Office of Malta.
Housing benefits
| HB1 | Residence requirements |
| 1990-2004 | 100 (tied to permit requiring 10 years) |
| 2005-2019 | 52-84 (tied to permit requiring 10 years, 18 months for EU nationals) |
| 2020-2023 | 35-46 (tied to permit requiring 5 years, 18 months for EU nationals) |
Malta has offered housing assistance since at least 1976. One of the eligibility requirements is 18 months of residence. But before a reform in 2019, the benefit was only available to citizens and (since 2004) EU citizens, and access to citizenship comes with a residence requirement of 10 years in many cases. Since then, the benefit is also available to permanent residents, for which at least five years of residence are required (Galea 2019, Government of Malta 1976, Housing Authority 2019, OECD 2009b). Scores on this indicator from 2005 onwards are weighted to account for the proportion of EU migrants using data on the inflow of immigrants by broad citizenship category from the National Statistics Office of Malta. Extrapolation used for missing data.
| HB2 | Status requirements |
| 1990-2004 | 100 (citizens) |
| 2005-2019 | 90 (citizens and privileged nationals) |
| 2020-2023 | 70 (citizens, privileged nationals, and permanent residents) |
All housing benefits were originally reserved for Maltese citizens. EU nationals have been entitled to these benefits as well once Malta joined the EU. A reform in 2019 opened up these benefits to permanent residents as well (Fsadni & Pisani 2012, Government of Malta 1976, Housing Authority 2019, OECD 2009).
| HB3 | Integration requirements |
| 1990-2004 | 100 (tied to permit demanding integration requirements) |
| 2005-2023 | 60 (tied to permit demanding integration requirements for some) |
The housing benefit has only been accessible by those who have met integration requirements. Throughout the period under study, Malta has demanded integration requirements for accessing citizenship and since 2010, for permanent residence permits as well (Aditus n.d.-a, Government of Malta 1964, 2006, 2010, Identity Malta Agency n.d.).
| HB4 | Housing services for successful asylum claimants |
| 1990-2023 | 100 (no targeted services available) |
Immigrants do not have privileged access to housing in Malta. Recognized refugees are able to access the same housing benefits as Maltese citizens, but there are no programs that specifically target or privilege them (Aditus n.d.-b).
Social assistance
| SA1 | Residence requirements |
| 1990-2004 | 52 (tied to permit requiring 5 years of residence) |
| 2005-2023 | 23-44 (tied to permit requiring 5 years of residence, 3 months for EU nationals) |
The Social Security Act does not state any residence requirements for accessing social assistance. However, social assistance is only available to permanent residents and there is a five-year residence requirement for accessing permanent residency. EU nationals are in a privileged position: they can only be barred from accessing social assistance in the first three months after taking up residence in Malta (Gauci 2010, Government of Malta 1987, Vella 2020). Scores on this indicator from 2005 onwards are weighted to account for the proportion of EU migrants using data on the inflow of immigrants by broad citizenship category from the National Statistics Office of Malta. Extrapolation used for missing data.
| SA2 | Status requirements |
| 1990-2004 | 80 (citizens and permanent residents) |
| 2005-2023 | 70 (citizens, privileged nationals, permanent residents) |
Only permanent residents and (EU) citizens are eligible for social assistance in Malta (Government of Malta 1987, McKay 2014, Vella 2020).
| SA3 | Consequences of welfare uptake |
| 1990-2010 | 0 (no consequence) |
| 2011-2023 | 14 (delayed access to PR) |
A reform in 2010 made having a stable income over three years a requirement for acquiring a permanent residence permit. Uptake of welfare is considered a violation of this requirement (Aditus n.d.-a, Government of Malta 2006, 2010).
| SA4 | Integration requirements |
| 1990-2010 | 0 (no integration requirements) |
| 2011-2023 | 60 (tied to permit with integration requirements for some migrants) |
Since 2010, there are integration requirements for accessing permanent residence, which is the necessary permit third-country nationals need to obtain in order to access social assistance (Aditus n.d.-a, Government of Malta 2006, 2010, Vella 2020).
Active labor market policies
| AL1 | Residence requirements |
| 1990 | -8 (no active labor market policies) |
| 1991-2023 | 0 (no residence requirements) |
Malta has offered a range of active labor market policies since the establishment of the Employment and Training Corporation in 1990 (later renamed JobsPlus), including training services, individualized employment advice, internship programs, and wage subsidies. Anyone can register with the ETC/JobsPlus as soon as they obtain the license to work in Malta (Caruana and Theuma 2012, JobsPlus n.d.).
| AL2 | Status requirements |
| 1990 | -8 (no active labor market policies) |
| 1991-2004 | 40 (citizens, permanent residents, some categories of temporary migrants) |
| 2005-2023 | 30 (citizens, privileged nationals, permanent residents, some categories of temporary migrants) |
Anyone with a license to work in Malta can access active labour market policies. This includes refugee claimants (who technically only gain access to the labor market 9 months after registering their claim, but in practice are allowed to work immediately), but excludes international students and temporary workers with permits that are tied to a specific employer (Aditus 2023b, Gauci 2010, JobsPlus n.d.).
| AL3A | Availability of language programs |
| 1990-2017 | -8 (no publicly funded programs available) |
| 2018-2023 | 14 (available to any immigrant) |
Malta did not offer any immigrant-targeted language programs until the launch of a new integration program in 2017, which is available to all third-country nationals who are interested in participating (Dimech 2017, European Commission 2024, Gauci 2010).
| AL3B | Public funding of language programs |
| 1990-2010 | 80 (no publicly funded language programs, but no requirement to learn language) |
| 2011-2017 | 100 (no publicly funded language programs, but required to learn language) |
| 2018-2023 | 0 (fully funded) |
There were no public immigrant-targeted language programs before 2017, which was particularly disadvantaging after integration requirements were introduced to obtain a permanent residence permit. The language training that is offered as part of the new integration program is fully funded (Dimech 2017, European Commission 2024, Government of Malta 2006, 2010).
| AL4A | Availability of employment assistance |
| 1990-2017 | -8 (no targeted services available) |
| 2018-2023 | 0 (available to all immigrants) |
The integration program that was launched in 2017 also includes employment assistance, and therefore since then there has been employment assistance available to all third-country nationals who are interested in participating in the program (Dimech 2017, European Commission 2024).
| AL4B | Nature of employment assistance |
| 1990-2017 | 100 (nothing available) |
| 2018-2023 | 20 (integration training) |
The new integration program includes a range of employment assistance activities, including integration training, job preparation, and assistance in navigating the labor market (Dimech 2017, European Commission 2024).
Works cited
- Aditus (2023a). ‘Malta: Health care.’ Retrieved from https://asylumineurope.org/reports/country/malta/reception-conditions/health-care/, March 2024.
- Aditus (2023b). ‘Malta: Access to the labour market.’ Retrieved from https://asylumineurope.org/reports/country/malta/reception-conditions/employment-and-education/access-labour-market/, March 2024.
- Aditus (n.d.-a). ‘Long-term residence.’ Factsheet no. 11, retrieved from https://aditus.org.mt/Publications/factsheet11_lotr.pdf, March 2024.
- Aditus (n.d.-b). ‘Rights Attached to the Beneficiaries of International Protection.’ Factsheet no. 14, retrieved from https://aditus.org.mt/Publications/factsheet14_rightsinternationprotection.pdf, August 2019.
- Camilleri, C. (2022). Migrants and Mental health: Integration Mapping Research. Valetta: Government of Malta.
- Caruana, C. & Theuma, M. (2012). The Next Leap: From Labour Market Programmes to Active Labour Market Policy. Floriana: UHM Voice of the Workers.
- Cuadra, C.B. (2010). Policies on Health Care for Undocumented Migrants in EU27. Country Report Malta. Malmö University.
- Cuadra, C.B. (2011). ‘Right of access to health care for undocumented migrants in EU: A comparative study of national policies.’ European Journal of Public Health, 22(2): 267-271.
- DeBono, D. (2013). ‘”Less than human”: the detention of irregular immigrants in Malta.” Race & Class, 55(2): 60-81.
- Department of Social Security (n.d.-a). ‘Retirement Pension.’ Retrieved from https://socialsecurity.gov.mt/en/information-and-applications-for-benefits-and-services/contributory-pensions/retirement-pension/, March 2024.
- Department of Social Security (n.d.-b). ‘Unemployment Benefit.’ Retrieved from https://socialsecurity.gov.mt/en/information-and-applications-for-benefits-and-services/work-incentives-and-unemployment-benefits/unemployment-benefit/, March 2024.
- De Wispelaere, F., De Smedt, L., & Pacolet, J. (2020). Export of unemployment benefits. Report on U2 Portable Documents Reference year 2019. European Commission.
- Dimech, T. (2017). ‘Immigration integration strategy has been launched.’ TVM News, retrieved from www.tvm.com.mt/en/news/immigration-integration-strategy-has-been-launched/, August 2019.
- EMN (2014). Migrant Access to Social Security and Healthcare: Policies and Practice. European Migration Network.
- European Commission (2024). ‘Governance of migrant integration in Malta.’ Retrieved from https://migrant-integration.ec.europa.eu/country-governance/governance-migrant-integration-malta_en#:~:text=Malta%20adopted%20its%20first%20integration,of%20European%20Affairs%20and%20Equality, March 2024.
- Fsadni, M. & Pisani, M. (2012). I’m Not Racist, But… Immigrant and Ethnic Minority Groups and Housing in Malta – A Research Study. National Commission for the Promotion of Equality.
- Galea, A. (2019). ‘Housing benefits on privately rented dwellings more than doubles across the board.’ The Malta Independent, January 30, 2019.
- Gauci, J.-P. (2010). ‘Malta’. In A. Platonova & G. Urso (eds.), Migration, Employment and Labour Market Integration Policies in the European Union (2000-2009) (pp. 163-172). Brussels: International Organization for Migration.
- Government of Australia (2024). ‘Social Security System in Malta.’ Retrieved from https://guides.dss.gov.au/social-security-guide/10/7/1/30, March 2024.
- Government of Malta (1964). Maltese Citizenship Act. Chapter 188, pp. 1-18.
- Government of Malta (1976). Housing Authority Act. Chapter 261, pp. 1-17.
- Government of Malta (1987). Social Security Act. Chapter 318, pp. 1-171.
- Government of Malta (2005). Reception of Asylum Seekers Regulations. Subsidiary Legislation 420.06.
- Government of Malta (2006). Status of Long-term Residents Regulations. Subsidiary Legislation 217.05.
- Government of Malta (2010). Immigration Act. Status of Long-term Residents (Third Country Nationals), (Amendment) Regulations, 2010. L.N. 370 of 2010.
- Government of Malta (2013). Health Act. Chapter 528, pp. 1-31.
- Government of Malta (2020). Integration = belonging. Migrant Integration Strategy & Action Plan. Valetta.
- Government of Malta (n.d.-a). ‘Migrant Health Liaison Office.’ Retrieved from https://healthservices.gov.mt/en/phc/mhlo/Pages/mhlo.aspx, March 2024.
- Government of Malta (n.d.-b). ‘Social Security Reciprocal Agreements.’ Retrieved from https://socialsecurity.gov.mt/en/about-us/Pages/Social-Security-Reciprocal-Agreements-.aspx, August 2019.
- Housing Authority (2019). ‘Housing Benefit on Privately Rented Dwellings (2019).’ Retrieved from https://housingauthority.gov.mt/wp-content/uploads/2023/12/HBS-Conditions-English-2024.pdf, March 2024.
- Identity Malta Agency (n.d.). ‘Acquisition of Maltese Citizenship by naturalization.’ Retrieved from identitymalta.com/acquisition-of-maltese-citizenship-by-naturalisation/, August 2019.
- JobsPlus (n.d.). ‘Third Country Nationals (Non-EU) seeking employment in Malta.’ Retrieved from https://jobsplus.gov.mt/job-seekers-mt-MT-en-GB/guidance-services/tcns-seeking-employment, August 2019.
- Luhmann, N., Bouhénia, M. & Giraux, F. (2007). Access to health care and human rights of asylum seekers in Malta. Experiences, results and recommendations. Paris: Médecins du Monde.
- McKay, L. (2014). European Minimum Income Network Country Report: Malta. European Union: European Minimum Income Network.
- Nimführ, S. (2016). ‘Living Liminality. Ethnological Insights into the Life Situation of Non-Deportable Refugees in Malta.’ Österreichische Zeitschrift für Volkskunde, 119 (3-4): 245-271.
- OECD (2009a). ‘Malta: Country pension design.’ IOPS Country Profiles.
- OECD (2009b). Country Chapter – Malta. OECD Social Policy Division. OECD Publishing.
- OECD (2021). Malta: Country Health Profile 2021. Paris: OECD Publishing.
- Spiteri Gingell, D. (2015). ‘Stronger Pension System.’ Times of Malta, July 20, 2015.
- UNHCR [United Nations High Commissioner for Refugees] (2013). Universal periodic review: Malta. UN.
- Vassallo, M. (2009). ‘Malta: Minimum Income Schemes.’ Brussels: European Commission. Vella, S. (2020). ‘Migrants’ Access to Social Protection in Malta.’ In Lafleur, J.-M. & Vintila, D. (eds.), Migration and Social Protection in Europe and Beyond (Volume 1) (pp. 299-312). Springer.