Framed by the PCSD Recommendation’s eight principles, this chapter explores Portugal’s performance across the policy cycle—from strategy formulation to implementation to evaluation. Drawing on recent reforms and innovations, the analysis highlights both institutional strengths and gaps to implement the SDGs. Through practical examples and actionable insights, this chapter outlines tangible ways forward, offering a roadmap to reinforce horizontal and vertical co-ordination, enhance data collection, and build resilience into the policy architecture.
OECD Policy Coherence Scan of Portugal
Strengthening Institutional Mechanisms for Sustainable Development
Abstract
Policy coherence for sustainable development (PCSD) lays the groundwork for informed policymaking, where sustainable development is integrated across all levels of government and policy areas. Organised around six simplified stages of the policy cycle (strategy formulation, planning, budgeting, engagement, implementation, and monitoring and evaluation) (Figure 3.1), this chapter highlights Portugal’s current strengths and gaps in its institutional framework to implement the Sustainable Development Goals (SDGs), using the OECD Council Recommendation on Policy Coherence for Sustainable Development (hereafter “the PCSD Recommendation”) as a benchmark.
Source: Authors’ elaboration.
The analysis includes possible ways ahead for Portugal to leverage its strengths and bridge the identified gaps, ultimately enhancing PCSD. These take into consideration government and stakeholder feedback on earlier drafts of this report, provided during a multi-stakeholder workshop held in Lisbon on 20 May (see also Annex A).
Strategy formulation requires governments to develop visions, plans and policies that guide decision-making and action. Considering sustainability aspects across economic, social and environmental areas at this early stage of the policy-making cycle facilitates an upstream application of PCSD principles. Principle 1 calls for building a strong, inclusive political commitment and leadership for PCSD at the highest political level to foster whole-of-government approaches to PCSD. Among other actions, adherents should, as appropriate:
a) enhance whole-of-government approaches to PCSD by defining priority areas, time-bound action plans and key performance indicators for making progress on PCSD and communicating results to the public
b) systematically apply a poverty, gender and human rights perspective to PCSD frameworks in line with the 2030 Agenda’s ambition of ending poverty in all its forms everywhere, empowering all women and girls and achieving gender equality
c) introduce measures to promote PCSD within government structures so that commitment to PCSD outlives electoral cycles and changes in government, cabinet compositions or government programmes, including identifying a lead institution responsible for promoting, overseeing and implementing PCSD
d) build leadership capacity in the public service to consistently formulate, implement and monitor policies coherent with sustainable development in and across sectors.
Strengths
Key strategic documents clarify responsibilities for SDG implementation and, to some degree, PCSD
Portugal has implemented a cross-cutting approach to sustainable development involving various governmental levels and sectors. The integration of the SDGs into national policies and the commitment to communicate results to the public are evidenced by the government's efforts to align national reporting mechanisms with the SDGs and its engagement in international forums on sustainable development.
The Council of Ministers Resolution No. 5/2023 (CMR 5/2023) (Government of Portugal, 2023[1]) establishes the national co-ordination structure for the implementation of the United Nations' Agenda 2030 for the Sustainable Development Goals in Portugal. The 2030 Agenda, with its aim to promote sustainable development globally, is integrated into national policies through the Portugal 2030 Strategy and other public policy instruments. Importantly, the resolution also announced the creation of a National Roadmap for Sustainable Development 2030 (RNDS 2030).
CMR 5/2023 (Article 2.c) makes the Centre for Planning and Evaluation of Public Policies (PLANAPP) responsible for PCSD in practice through its mandate to identify, map and monitor plans and other national public policy instruments that contribute to the implementation of the SDGs and their targets, with a view to ensuring their coherence. Specifically, PLANAPP is tasked with supporting the definition and implementation of public policies and prospective analysis. Its main role is to monitor and reinforce each of the intervention phases in the public policy cycle – anticipation and planning, design and implementation, monitoring and evaluation – promoting the creation and consolidation of methodologies and skills, internally and in the public structure, necessary for a quality public performance in these areas. In addition, it is tasked to provide support for political decisions; train the public administration; boost networks and partnerships; and produce and disseminate knowledge about public policies.
The Portuguese government's proposal for the Law of Great Options for 2024-28, approved by the Council of Ministers on 25 July 2024, fosters strategic investments that have the potential to enhance PCSD. The proposal outlined investments of EUR 9.4 billion (euros) for 2024, targeting six key challenges (Lusa, 2024[2]; Pinto, 2024[3]).1
Targeting six key challenges
Sources: (Lusa, 2024[2]), Grandes Opções prevêem investimentos de 9,4 mil milhões para este ano, https://www.publico.pt/2024/07/04/economia/noticia/opcoes-preveem-investimentos-94-mil-milhoes-ano-2096312; (Pinto, 2024[3]), Grandes Opções do Plano. Governo prevê gastar 9,4 mil milhões de euros em novas medidas só este ano, https://eco.sapo.pt/2024/07/03/governo-preve-gastar-94-mil-milhoes-de-euros-em-novas-medidas-so-este-ano/.
These areas are interlinked with the need to tackle immediate and medium-to-long-term challenges posed by global crises, such as the post-COVID recovery and geopolitical tensions, notably the conflict in Ukraine. The law sets the framework for actions and budgets over multiple years and contributes to alignment with the 2030 Agenda and other international commitments.
Portugal’s sustainability agenda includes a poverty, gender and human rights perspective
Echoing key principles of the 2030 Agenda, many official documents refer to the importance of social inclusion and reducing inequalities. The emphasis on education and training for all, including measures aimed at reducing gender disparities and promoting equality, reflects a commitment to these perspectives within the broader context of sustainable development.
Notable, non-exhaustive examples include:
National Strategy for Equality and Non-Discrimination 2018-2030 "Portugal+Igual" (ENIND), approved in the Council of Ministers Resolution No. 61/2018 (Government of Portugal, 2018[4]). Portugal has established frameworks to promote gender equality and non-discrimination, directly addressing poverty, gender and human rights perspectives. This strategy focuses on the elimination of gender stereotypes and the full realisation of human rights, comprising three action plans:
Action Plan for Equality between Women and Men (PAIMH)
Action Plan for the Prevention and Combating of Violence against Women and Domestic Violence (PAVMVD)
Action Plan for Combating Discrimination on Grounds of Sexual Orientation, Gender Identity and Expression, and Sexual Characteristics.
The elaboration of the strategy was based on broad consultation with government departments, local authorities, experts, the private sector and organised civil society under the technical co‑ordination of the Commission for Citizenship and Gender Equality (CIG). The CIG is the public body responsible for promoting and defending the fundamental principle of equality between women and men as enshrined in the Constitution of the Portuguese Republic.
National Child Guarantee Action Plan aims to ensure access to a set of essential services for all children and young people in the most vulnerable situations. On 17 January, the Council of Ministers approved, through Council of Ministers Resolution no. 3/20232, the National Child Guarantee Action Plan (PAGPI) 2022-2030 (PAGPI, n.d.[5]).
National Action Plan for the Implementation of the UN Security Council Resolution 1325 (Government of Portugal, 2009[6]): This plan focuses on women, peace, and security, incorporating a gender perspective into peace and security policies, in line with the 2030 Agenda ambition. The CIG is the institutional lead.
Engineers for a Day Programme: Directed towards students at the primary and secondary education levels, aiming to deconstruct gender stereotypes associated with the most segregated areas through practical activities. Since 2017, this initiative has engaged more than 12 500 young people, involving 200 partner entities, including companies in the technology sector, municipalities, schools and higher education institutions (HEIs).
Incode 2030: Technovation Girls: A worldwide programme in science, technology, engineering, arts and mathematics (STEAM) that empowers and mobilises girls aged 8-18 in technological areas, encouraging them to think, act, and create technological solutions. In 2022, an additional 270 students from 50 localities across 12 districts participated.
Sustainable Employment Commitment: A transitional measure aimed at stimulating the hiring of unemployed people, especially from vulnerable groups, such as single-parent families and domestic violence survivors.
Portuguese Development Cooperation Strategy 2030 (PDCS2030), adopted through Council of Ministers Resolution No. 121/2022, integrates a strong human rights, gender equality and sustainability perspective into Portugal’s external action. Guided by principles such as the respect for fundamental rights and freedoms, the promotion of peace, democracy and the rule of law, and the empowerment of women and girls, the PDCS2030 reinforces the 2030 Agenda’s commitment to inclusive and equitable development, particularly in partner countries.
Efforts to enhance leadership capacity for sustainable development are underway
Portugal has made efforts to enhance leadership capacity within the public service for sustainable development. The involvement of multiple government sectors in SDG implementation suggests an underlying aim to develop leadership skills that support the formulation, implementation and monitoring of coherent policies across different sectors.
Notable, non-exhaustive examples include:
Integrated Training Path of Capacity-Building in Sustainability for Public Administration (PICSAP): PICSAP reflects the National Institute of Administration’s (INA) commitment to sustainability by:
training public administration workers and leaders in sustainability
encouraging research and the creation of knowledge in sustainability in public administration
disseminating knowledge about sustainability and good practices in public administration
promoting innovation among public administration workers and leaders to achieve the SDGs.
INA Award, on Sustainability in the Context of Public Administration (social, economic and environmental dimensions).
Innovation for Sustainability: Symposium of Latin American Centre for Development Administration (CLAD). CLAD refers to events like the XXV International Congress of CLAD on State and Public Administration Reform. This event was co-organised by CLAD and the Government of Portugal and focused on public administration reform. It took place in Lisbon on 24‑27 November 2020 and included discussions on governance and public institutions in the Americas.
Public Policy Training Programme: Targets managers and senior technical staff of the public administration and results from the protocol signed between INA and PLANAPP, which aims to train the public administration in the areas of prospective, planning, design and programming, monitoring and evaluation of public policies, with a view to formulating more robust, responsible and adaptable policies to the changes in context felt in public action (INA, 2024[7]).
The RNDS 2030, currently under government review, will promote training for the public administration on an integrated sustainability training path for the public administration; training within the scope of PCSD; and training on “statistical literacy” within the scope of sustainable development. A working version of the RNDS 2030 is available at PTSustentavel.gov.pt (INA, 2024[7]).
Gaps
There is scope for more structured and integrated engagement and consistent commitment to PCSD
While the Council of Ministers Resolution No. 5/2023 (Government of Portugal, 2023[1]) and the establishment of PLANAPP and the Rede de Serviços de Planeamento e Prospetiva da Administração Pública (REPLAN, the Network of Planning and Foresight Services of Public Administration) highlight Portugal's commitment to implementing the SDGs, there is an opportunity to enhance consistent political advocacy and leadership for PCSD. Currently, it is unclear to what extent existing mechanisms can safeguard PCSD commitments across electoral cycles and government changes. Strengthening the resilience of the current structure could help ensure continuity and stability in sustainable development initiatives, regardless of political shifts.
During the workshop held within the framework of this project on 20 May in Lisbon, government officials underscored the need to “connect the dots” across existing institutional arrangements. The Government has in place key government entities to design, apply and evaluate PCSD, yet greater efforts could be made to sustain a more integrated approach to PCSD by ensuring that these government institutions work together seamlessly and on an ongoing basis.
Civil service capacity and leadership skills can be streamlined further
Training programmes like PICSAP and events such as the CLAD symposium play an important role in capacity building; however, there is an opportunity to further strengthen the integration of sustainable development principles across all public service sectors. Public awareness campaigns and educational programmes could also be expanded to foster a deeper understanding and commitment to sustainable development among public servants at all levels and within the broader public. Enhanced co-ordination and collaboration among initiatives would also reduce duplication and create synergies, ultimately maximising the impact of these activities.
Possible ways ahead
Provide PLANAPP with a clear mandate to drive PCSD and ensure recognition of this mandate among other entities. The 20 May workshop encouraged PLANAPP to facilitate a more explicit multi-stakeholder approach to driving PCSD across the government.
Strengthen political leadership and advocacy for PCSD further, for example, by establishing a high-profile political champion or a dedicated ministerial role. This role could be responsible for regularly engaging with various government sectors to identify synergies and trade-offs at the early stages of the policy cycle. Workshop participants also flagged the idea of appointing SD/PCSD Focal Points in key line ministries and institutions (possibly by expanding the mandates of existing strategic planning units in these entities) to engage systematically with REPLAN and other cross-government coordination mechanisms to drive PCSD more effectively.
Embed PCSD principles into legislative frameworks to provide legal backing that ensures sustainability commitments are upheld across electoral cycles, for example, as in Finland (Box 3.1). Introduce binding regulations that mandate the consideration of the SDGs in all government policies and programmes from their inception. Additionally, the 20 May workshop suggested that PLANAPP design and distribute widely an integrated, consensus-based PCSD guidance framework for all government entities engaged in PCSD.
Develop more detailed action plans for PCSD, for example, as part of the RNDS 2030, incorporating specific, measurable, achievable, relevant and time-bound (SMART) objectives and key performance indicators (KPIs) for each priority area. This would also facilitate monitoring, evaluation and reporting on PCSD, making progress more transparent and holding the responsible institutions accountable to the public.
Conduct regular training and capacity-building programmes for government officials at all levels to ensure they understand and can effectively implement PCSD principles. This could be integrated into the Public Policy Training Programme (INA, 2024[7]), which aims to train managers and senior technical staff of the public administration in the areas of planning, design, programming, monitoring and evaluation of public policies. For example:
Encourage the inclusion of content on the SDGs and PCSD in training programmes aimed at managerial positions and senior technical staff.
Develop specific modules for each SDG and promote sustainable practices.
Provide training for more local communities (train-the-trainer approach): deliberative groups.
Promote, in co-ordination with FEFAL and other relevant entities, capacity-building programmes for Regional Coordination and Development Commissions (CCDRs), Intermunicipal Communities (CIMs), and local authorities, using participatory methodologies and territorial approaches
Since the early 2000s, Finland has been recognised for its comprehensive and forward-thinking approach to sustainability and PCSD. The country seamlessly integrates the SDGs into its national budgeting, planning and legislative frameworks. This ensures that all ministries actively contribute to a cohesive national strategy for sustainable development.
A key driver of this unified effort is the Finnish National Commission on Sustainable Development, chaired by the prime minister, reflecting the highest political commitment to sustainability. This body fosters cross-ministerial collaboration and ensures alignment across government actions.
This institutionalised approach provides resilience to political changes or shifts in government priorities and ensures that sustainable development remains a key national priority, regardless of the political landscape.
Source: Government of Finland (2020[8]), Voluntary National Review 2020 Finland: Report on the Implementation of the 2030 Agenda for Sustainable Development, https://sustainabledevelopment.un.org/content/documents/26261VNR_Report_Finland_2020.pdf.
Effective policy planning requires anticipating and balancing a wide range of economic, social and environmental priorities, which sometimes conflict. It requires identifying synergies and trade-offs while promoting an integrated and cohesive approach to both planning and execution. To accomplish this, clear mandates and mechanisms must be established to enable ministries and public sector agencies to align their sectoral programmes, budgets and policies with shared sustainability goals. Such alignment is essential to avoid duplication and ensure the efficient, coherent allocation of public resources.
This section outlines Portugal’s strengths and challenges in relation to Principle 2 of the PCSD Recommendation, which calls for the definition, implementation and communication of a strategic long-term vision that supports policy coherence and guides both government and stakeholders toward common sustainable development goals. In this regard, it is recommended that adherents, as appropriate:
a) develop a strategic long-term vision that outlines desired sustainable development outcomes, scenarios and actions to ensure coherence across sectors, government levels, and between domestic and external policies that could affect developing countries
b) use existing tools, such as strategic foresight, scenario development, and systems thinking approaches, in formulating and implementing policies to identify, prevent and mitigate actual and potential adverse impacts on the well-being and sustainable development prospects of future generations.
Strengths
The RNDS 2030 is expected to mainstream the SDGs into planning and policy frameworks
The integration of the SDGs into national planning and policy frameworks is expected to be achieved through the implementation of the forthcoming RNDS 2030. PLANAPP has prepared a revised version of the RNDS 2030, currently under government review, which outlines: 1) the government’s commitment to sustainable development; and 2) a PCSD Plan. A working version of the RNDS 2030 is available at PTSustentavel.gov.pt (INA, 2024[7]).
While the Portugal 2030 Strategy, approved by the Council of Ministers Resolution No. 98/2020 of 13 November, includes very few references to the SDGs, it provides a medium-term planning framework structured around four thematic agendas considered crucial to the development of Portugal's economy, society and territory by 2030:
Thematic agenda 1: People first: A better demographic balance, greater inclusion, less inequality
Thematic agenda 2: Digitalisation, innovation and skills as drivers of development
Thematic agenda 3: Climate transition and resource sustainability
Thematic agenda 4: A country that is competitive externally and cohesive internally.
The strategy puts into practice the partnership agreement between Portugal and the European Commission to apply EUR 23 billion of European funds to projects that stimulate and develop the Portuguese economy between 2021 and 2027 (Portugal 2030, n.d.[9]), around five EU strategic objectives (a smarter, greener, better-connected, more social Europe and one that is closer to its citizens). The total amount available to fund projects will be distributed through programmes organised by theme and region. Individuals, companies, local authorities, and other public bodies, co-operatives, associations, private charitable institutions, and other private entities can apply for and benefit from this fund.
Building on its domestic sustainability efforts, Portugal also seeks to ensure coherence between internal priorities and external action, particularly in areas impacting developing countries. Examples of this are the Strategic Cooperation Programmes (PECs) established with Portuguese-speaking African countries (PALOP) 3 and Timor-Leste, which contribute to sustainable development across the five pillars of the 2030 Agenda — People, Planet, Prosperity, Peace and Partnership — and support these countries in advancing the SDGs. These partnerships promote mutual development while aligning with Portugal’s national sustainability priorities, including clean energy, climate action, and social inclusion.
PLANAPP plays a key role in strategic foresight and scenario development
Strategic foresight in Portugal is underpinned by robust institutional support, exemplified by the establishment of PLANAPP itself. As a dedicated competence centre, it has the authority and mandate to weave foresight throughout various government levels, planning, and policymaking. PLANAPP's approach involves multiple government departments, academic institutions and civil society in the foresight process. This collaborative method is particularly evident in their approach to climate change policies, where a wide range of stakeholders contribute to forming comprehensive, future-oriented environmental policies. Strategic foresight also plays a vital role in strengthening decision-making processes. During the coronavirus (COVID-19) pandemic, foresight tools helped the government anticipate various pandemic scenarios, which enabled the formulation of proactive and effective public health responses.
Recently, the functional and organisational reform of the public administration, approved by Decree-Law No. 43-B/2024 (2 July)4, aimed to strengthen strategic services focused on study, planning and evaluation. Within this framework, PLANAPP underwent restructuring to enhance its role in strategic planning, foresight, monitoring and evaluation. PLANAPP also fosters inter-ministerial co-operation and collaborative work, supporting policymakers at all stages of the policy cycle with specialised and harmonised expertise to improve public policies and their outcomes in Portugal, according to Decree-Law No. 67/2024 of 8 October.5
The decree creating PLANAPP also establishes REPLAN as an inter-ministerial network for planning and foresight services of the public administration in its Chapter III (Articles 13-15).6 REPLAN aims to foster co-operation and alignment on strategies across the government, increase knowledge sharing and competencies in the administration, and further build the evidence base, involving civil society and academia. In addition to strategic planning processes, considering Decree-Law No. 67/2024 of October 8 (Government of Portugal, 2024[10]), REPLAN is also responsible for ensuring, under the co-ordination of PLANAPP, adequate co-ordination of the activities of prospecting, planning, monitoring, evaluation and analysis of the impacts of public policies (OECD, 2023[11]).
Additionally, PLANAPP is responsible for Lab2050 – Collaborative Foresight Laboratory, which is dedicated to collectively creating visions for a desirable and sustainable future for Portugal by 2050 (PlanAPP, n.d.[12]). The project aims to foster a democracy where citizens understand, support and engage in the design and implementation of public policies through participatory processes. These policies are intended to be grounded in long-term strategies that contribute to building the fair and sustainable society that citizens aspire to (PlanAPP, n.d.[12]).
Another example of long-term vision in Portugal is the Megatrends 2050 Report (PlanAPP, n.d.[13]). This report identifies nine key megatrends expected to shape Portugal's future: worsening climate change; increasing pressure on natural resources; diversification and shifts in economic models; divergent demographic trends; a more urbanised world; a more digital world; accelerated technological development; a multipolar world; and new challenges to democracy. Strategic foresight tools help to enhance decision-making and policy development.
In Portugal, strategic foresight is applied through various tools and methodological approaches aimed at enhancing the government's decision-making processes and policy development.
The OECD Public Governance Policy Paper 2023, Improving decision-making and policy development in Portugal: The role of PLANAPP (OECD, 2023[11]) highlights the following:
Blueprints for strategic foresight: These provide a structured framework that guides the adoption and implementation of strategic foresight within government settings. This blueprint helps in assessing and tailoring strategic foresight interventions to meet specific governmental needs and contexts.
Methods and tools of strategic foresight: A variety of methodological portfolios are employed to address policy challenges. These methods and tools are circulated and appropriated across different government sectors to ensure that foresight activities are comprehensive and inclusive.
Integrated policy cycle: Strategic foresight is deeply embedded in the policy development cycle. This integration ensures that foresight activities are co-ordinated with policy planning, enhancing the responsiveness, relevance, acceptability and accessibility of these initiatives to policymakers.
A number of exercises promote systems thinking and policy coherence
The adoption of systems thinking approaches in policy design and implementation allows for a comprehensive understanding of the complex interdependencies within and across systems, ensuring that policies are designed with a holistic view of their potential impacts. Systems thinking encourages policymakers to consider the wider consequences of decisions, including unintended effects on sustainability and well-being.
Ongoing initiatives like the PLANAPP policy alignment exercise demonstrate Portugal's commitment to advancing its sustainable development agenda. These initiatives involve stakeholder engagement, literature reviews, and the development of coherence mechanisms to ensure effective and efficient implementation of the SDGs.
In addition, a recently completed project funded by the European Commission and implemented by the OECD, “Development of a strategic plan for decarbonisation, digitisation, and sustainable blue economy for the port-maritime and fisheries sectors”, encourages the use of PCSD tools such as a Sustainability Check to promote the alignment of national policies with relevant SDGs, providing valuable insights into policy integration and coherence.
Gaps
A strategic long-term vision beyond 2030 could help foster PCSD
Portugal has an opportunity to enhance its sustainable development efforts by developing a strategic long-term vision that extends beyond 2030. A cohesive and comprehensive strategy that integrates all dimensions of sustainable development would strengthen the country’s capacity to promote, implement and monitor progress effectively. Although the National Reform Programme (PNR) and the Stability Programme (PE) were foundational, these frameworks were replaced in 2024 by the National Medium-Term Budgetary-Structural Plan (POENMP), in alignment with the new framework of the European Semester. While the Portugal 2030 Strategy is also in place, there is scope to explicitly define sustainable development outcomes within these frameworks, enhance coherence across sectors, and consider impacts on developing countries.
To maximise the effectiveness of these strategies, fostering more inclusive engagement with a broad range of stakeholders would be beneficial. A deeper collaboration could further enrich these strategies, ensuring that they reflect diverse perspectives and comprehensively address the multifaceted challenges of sustainable development. The forthcoming RNDS 2030 should not be intended as an additional procedure but rather as a global framework to ensure the integration of the 2030 Agenda and PCSD into policymaking.
There is scope to enhance the strategic use of foresight tools in policymaking
Integrating foresight insights into daily policy-making processes helps ensure that foresight outcomes are regularly and effectively utilised in policy development, a goal that continues to evolve.
Achieving effective foresight requires sustained investment in skills, technologies and methodologies. However, resource allocation constraints can sometimes limit the ability to support comprehensive, ongoing foresight activities. Additionally, measuring the direct impact of foresight on policy outcomes poses unique challenges, which can make it difficult to justify continued investment and refine approaches based on past experiences. Addressing these challenges by enhancing integration, securing resource commitment, and developing improved impact measurement would enable strategic foresight to play a stronger role in Portugal’s planning and decision-making processes.
Possible ways ahead
The newly established REPLAN network aims to help facilitate frequent formal and informal exchanges for strategic planning, foresight and evaluation units and experts. Success will require being intentional about the underpinning mechanisms and tools used by PLANAPP for information and data sharing and gathering and synthesising inputs to inform and co-ordinate strategic policymaking. Possible ways ahead include:
Create a strategic long-term vision beyond 2030: Portugal could develop a comprehensive and forward-looking vision that extends beyond 2030, outlining clear sustainable development outcomes, scenarios and milestones. This vision would integrate economic, social and environmental dimensions, ensuring coherence across sectors and government levels, and guide decision-making for long-term sustainability.
Several opportunities lie in strengthening the roles of PLANAPP and REPLAN:
Strengthen PLANAPP’s capacity for anticipation and foresight: PLANAPP’s core mandate includes fostering foresight analysis across all stages of the policy cycle. To further strengthen its role, PLANAPP could expand its foresight capabilities by developing more advanced and comprehensive methodologies for scenario planning and long-term forecasting. This could involve greater collaboration with international foresight institutions and increased training for governmental staff on foresight methodologies. Additionally, PLANAPP could help ensure that its foresight insights are regularly integrated into the early phases of policy design and strategic decision-making, guiding the government in preparing for future uncertainties and aligning long-term goals with national priorities.
Enhance the role of REPLAN in cross-sectoral alignment: As REPLAN is responsible for co‑ordinating efforts across governmental sectors, it could be further empowered by deepening its role in harmonising sectoral plans with cross-cutting strategic documents. This could be achieved through more structured, regular interactions between REPLAN and sectoral ministries, supported by a clear protocol for reviewing and adjusting sectoral strategies to fit the overarching national agenda. Additionally, REPLAN could play a critical role in the early detection of misalignments between sectoral and national plans, providing timely recommendations to ensure policy coherence.
Leverage multi-sectoral teams for integrated foresight and evaluation: The multi-sectoral teams already established under REPLAN (e.g. Strategic Planning, Foresight, Monitoring and Public Policy Evaluation Teams) provide a unique opportunity to foster collaborative foresight across governmental bodies. For example, the main purpose of the Monitoring Team (where many RNDS activities will be validated) is to monitor and develop projects common to different government areas with a view to promoting a culture and systematic practice of monitoring sectoral and transversal public policies, as well as mobilising public institutions for this purpose. These teams have been tasked with producing joint studies that reflect cross-sectoral issues, ensuring that all governmental areas contribute to a shared long-term vision. By leveraging the expertise of technicians and consultants from different sectors, these teams could further develop innovative foresight and evaluation models that are more agile and adaptable to changing national and global circumstances. The general objectives and guidelines of REPLAN in 2025, as a network and partnership operating model aiming to promote inter-ministerial co-operation, knowledge sharing, and resource sharing, include continuing to ensure, under the coordination of PLANAPP, adequate coordination of foresight, planning, monitoring, evaluation, and impact analysis activities of public policies among the different government areas. To this end, mechanisms and tools should continue to be developed to deepen and systematise collaborative work, such as guidelines, recommendations, procedure manuals, good practice guides, templates, and other standardised documents relevant to public policy management, as well as to ensure appropriate alignment and compatibility between transversal strategic planning instruments and sectoral planning instruments.
Improve communication channels and data sharing: Effective co-ordination between PLANAPP and REPLAN requires robust data-sharing mechanisms. REPLAN, through its dedicated Monitoring team, could play a pivotal role in this domain by facilitating the development of a centralised digital platform. This platform would promote transparency and enable the various governmental bodies to stay aligned with the strategic plans and evaluations developed by PLANAPP. Moreover, the Data Access team could oversee the inclusion of functionalities such as real-time tracking of sectoral plan adjustments and their compatibility with broader national strategies.
Increase stakeholder engagement in strategic planning and foresight: PLANAPP and REPLAN could enhance their roles by promoting greater involvement of external stakeholders, including civil society, academia and private-sector actors, in foresight and planning processes. This could be done through participatory foresight exercises, workshops and public consultations that help build a more comprehensive and inclusive vision for the future. In this regard, the RNDS 2030 foresees the creation of a National Stakeholder Forum on Sustainable Development, which could serve as a platform to institutionalise and strengthen stakeholder engagement. REPLAN, in particular, could facilitate stakeholder engagement at the cross-sectoral level, ensuring that multi-sectoral perspectives are considered when developing strategic plans and evaluations.
Develop metrics for monitoring policy coherence and alignment: REPLAN could strengthen its efforts in developing evaluation models and metrics that effectively measure the alignment of sectoral policies with the overarching strategic plans. One of the measures included in the RNDS 2030 is to promote the incorporation of monitoring of PCSD, specifically through implementing a Monitoring Framework for Strategic Goals of Planning Instruments. This would involve creating a PCSD metrics system to monitor and track how sectoral initiatives contribute to national and global sustainability goals. Additionally, these metrics could be used to regularly assess the effectiveness of foresight tools in improving policy coherence and responsiveness.
Strengthen the role of PLANAPP as a foresight hub: To further consolidate its position, PLANAPP could act as a national hub for foresight activities, co-ordinating not only government but also external stakeholders, such as research institutions and non-governmental organisations (NGOs). This would position PLANAPP as the central body for collaborating on foresight projects, providing training and disseminating best practices. Additionally, PLANAPP could develop long-term policy scenarios that are regularly updated, serving as key reference points for all governmental sectors to adapt their strategies to future trends and challenges.
The 20 May workshop reinforced these points. In addition, workshop participants underscored the need for PLANAPP to drive greater alignment and integration of sector strategies to enhance PCSD. This could be done by strengthening common targets, performance indicators and planning horizons across sector strategies and aligning these explicitly with SDG-related ones in the RNDS 2030. Over time, this would help to ensure that these data and indicators are aligned with SDG-framed spending targets and spending results indicators in the national budget as Portugal moves towards performance-based budgeting practices.
Italy has made significant progress in integrating sustainable development principles into national planning, demonstrating a commitment to enhancing policy coherence early in the policy process. In 2017, Italy adopted its National Sustainable Development Strategy (NSDS), aligning it with the 2030 Agenda. This strategy embeds the SDGs into both national and local policies, promoting a comprehensive approach that spans economic, social and environmental dimensions.
To ensure effective implementation of the NSDS, Italy established the Inter-ministerial Committee for Economic Planning (CIPE). CIPE plays a pivotal role in co-ordinating efforts across ministries and various levels of government, fostering policy coherence and addressing the interconnections between different SDGs.
Italy also places a strong emphasis on stakeholder engagement, involving civil society, businesses and academic institutions in the development and execution of its sustainability strategy. A key example is the Italian Alliance for Sustainable Development, which unites over 200 organisations to promote the SDGs across Italian society.
Source: OECD (2022[14]), Italy's National Action Plan for Policy Coherence for Sustainable Development, https://www.oecd.org/en/publications/italy-s-national-action-plan-for-policy-coherence-for-sustainable-development_54226722-en.html.
According to the 2023 Voluntary National Review (VNR), several funding instruments in Portugal are aligned with the SDGs. The VNR also highlights the need for budget programme co-ordination to provide quarterly information on actions contributing to SDG achievement. A decree-law (Government of Portugal, 2023[15]) was approved in July 2023, amending the state's budget (Orçamento de Estado, OE) rules for 2023, allowing for in-depth monitoring and aligning budget execution with the 2030 Agenda.
PCSD Principle 3 calls for improving policy integration to better incorporate sustainable development into policy and finance and, in that respect, capitalise on synergies and benefits across economic, social and environmental policy areas as well as between domestic and internationally recognised SDGs. To this end, adherents should, as appropriate:
a) make strategic use of policy planning mechanisms and tools, including the budget process and public procurement, to manage synergies and trade-offs and integrate sustainable development into sectoral policies
b) incorporate a PCSD/sustainable development lens into national development plans, sustainable development strategies and financing plans and develop supporting tools, such as guidelines or regulations, as well as co-ordination mechanisms for ministries and government agencies to align their mandates, policies and sectoral objectives with broader sustainable development goals
c) integrate regional and territorial development into sectoral policies to achieve greater synergies with long-term strategic planning for the implementation of the SDGs
d) take a whole-of-government approach to development policy and finance to diversify the resources and linkages beyond official development assistance that support sustainable development impact, including domestic resources, private investment, remittances and philanthropic flows, as well as the promotion and protection of human rights.
Strengths
The Portuguese Directorate-General for the Budget plays a central role in integrating the SDGs into fiscal policy
The Directorate-General for the Budget (DGO) operates under the Ministry of Finance and holds significant responsibilities regarding the preparation, implementation and monitoring of the national budget. Its overarching goals are to ensure fiscal discipline, manage public finances efficiently, and promote transparency in the budgetary processes.
The DGO, by overseeing the national budget, plays a direct role in ensuring that the budgeting process and public procurement are used strategically to manage synergies and trade-offs across policies. Portugal’s budget is crafted in accordance with major planning options and legal or contractual obligations. The ability to structure the budget by programmes allows for targeted allocation of resources towards specific sustainable development objectives. This programmatic approach enhances the effectiveness of financial management in achieving set goals. The execution of the budget is supervised by the Court of Auditors and the Assembly of the Republic. Following the Court’s opinion, the Assembly assesses and approves the General State Account, including social security. This regular supervision ensures ongoing accountability.
The 2024 State Budget Proposal Report, presented on 10 October 2023, included, for the first time, a chapter dedicated to the SDGs. This exercise involved tagging/inputting entities to specific SDGs based on their mission and their responses to a questionnaire. It was the first time there was an effort to highlight budget allocations concerning specific SDGs, focusing on key sectors such as health, education, social security and infrastructure. The results showed that SDG 3 (Good Health) and SDG 4 (Quality Education) received the highest financial contributions, with future budgets expected to refine this methodology further.
The 2025 State Budget Proposal Report, presented on 10 October 2024, contained, for the second consecutive year, a chapter dedicated to the SDGs7. PLANAPP was an active part of this process in the design of the information collection instrument applicable to public administration entities covered by this financial instrument. PLANAPP also aimed to identify specific and financially measurable interventions raised for the implementation of certain SDG(s) and wrote the aforementioned chapter. As in the 2024 State Budget Proposal Report, the data presented assume, as a general principle, the allocation of the budget of central administration entities to one or more SDGs, depending on their area of intervention, and identifies interventions with investment greater than EUR 100 million, based on the questionnaire send to entities. The total expenditure with an impact on the SDGs increased by 8.1% in the 2025 State Budget Proposal Report, compared to the 2024 State Budget Proposal Report.
In this context, the DGO’s circular for the preparation of the State Budget included an SDG annex with instructions for gathering information on the SDGs. The goal is to identify measures and projects that contribute to the implementation of specific SDGs. The responses collected from entities using the provided template were analysed to determine the budget allocations for each SDG, though the methodology used goes beyond this report. Budget allocations were assigned to one or more SDGs based on each entity's area of intervention. However, certain expenses, such as transfers to local governments, government operations, and financial charges, were excluded. This exercise represents a positive step in improving transparency around the relative prioritisation of the SDGs as part of the budget process, alongside the programme-based budgeting pilots, and offers an insight into public policy priorities related to SDG implementation. This being said, there is room for future improvement.
Table 3.2 illustrates measures and projects that contribute to the implementation of specific SDGs within the State Budget. The matrix links central administration budgets to relevant SDGs (row) by government area (column). It excludes certain expenditures, such as transfers to local governments, financial assets and liabilities, and cross-cutting entities that do not directly impact any SDG.
In EUR millions
Source: Government of Portugal (2025[16]), Orçamento do Estado 2025, https://planapp.gov.pt/orcamento-estado-2025-capitulo-ods/.
Decree-Law No. 17/2024, which sets out the regulations for executing the 2024 State Budget, addresses in Article 32 the responsibilities and duties of budget programme co-ordinators. It specifies that "7 - The co‑ordinating entities shall ensure that information is provided, quarterly, on the actions that contribute to the achievement of the Sustainable Development Goals - Agenda 2030, under the terms to be defined by the DGO in the budget execution circular." The co-ordinating entities for the budget programmes are listed in Annex I of the aforementioned decree-law.
Strategic policy planning mechanisms contribute to the integration of sustainable development into sectoral policies
Portugal has employed strategic policy planning mechanisms and tools to integrate sustainable development into sectoral policies. As previously mentioned, the Major Options Law for 2024-2028 sets forth the main planning and financial priorities for Portugal. This law tags six key challenges: fostering a fairer and more supportive country; enhancing innovation and competitiveness; improving state efficiency; promoting democracy and transparency; advancing environmental sustainability; and strengthening global engagement. These priorities are interlinked with the need to address medium-to-long-term challenges, including recovery from the post-COVID era, geopolitical tensions, and alignment with the 2030 Agenda. This legislative framework embeds the SDGs into its strategic priorities, ensuring national policies support sustainable economic, social and environmental outcomes. It also provides a multi-year budgetary framework to manage synergies and trade-offs across various policy domains, facilitating the implementation of the 2030 Agenda and other international commitments.
Portugal's NRP8 integrated the SDGs into its national planning and development strategies, showcasing a comprehensive approach to sustainable development across government policies. One of the challenges underlying the development of the NRP was the alignment of policy priorities that respond to national needs and challenges with the EU policy guidelines, which together expressed the purpose of convergence and socio-economic cohesion and are associated with a set of funding programmes.
The NRP encompassed the entire public policy planning process. It provided an annual assessment of national contributions to achieving key EU objectives, including the SDGs. In 2024, the POENMP replaced the PNR and the Stability Programme (PE). The POENMP sets out budgetary commitments, national reform, and investment priorities for a four-year period, addressing the specific country recommendations directed at Portugal and aligning them with the common EU priorities. The first POENMP 2025-2028 has already been published.
Portugal’s use of national and European financing instruments, such as the Recovery and Resilience Plan (RRP), also indicates strategic use of the budget process. Moreover, Portugal is considering aligning public procurement with the SDGs. The 2017 VNR introduced the concept of incorporating environmental criteria into public procurement, emphasising its role in advancing sustainability goals. Building on this, the 2023 VNR proposed the idea of green public procurement, further aligning procurement practices with the SDGs.
Other policies, strategies and plans, some mentioned earlier, also support policy integration, for example:
The Action Plan for Circular Economy Portugal facilitates the integration of sustainable development into sectoral policies.
The Green Growth Commitment, through the Council of Ministers Resolution No. 28/2015 (Government of Portugal, 2015[17]), and subsequent strategies like the National Strategy on Green Public Procurement 2020 (ENCPE 2020) (Government of Portugal, 2016[18]) and ECO360 (Government of Portugal, 2023[19]), aims to boost green purchasing, promote resource efficiency, advance towards a circular economy and stimulate eco-innovation.
The Portuguese Development Cooperation Strategy 2030 reflects an effort to incorporate sustainable development into a broader policy and planning framework.
The Portugal 2030 Strategy (Estratégia Portugal 2030) and the Partnership Agreement – Portugal 2030 aim to foster regional development.
The RNDS 2030 is meant to be an evolving instrument aimed at operationalising a set of changes to accelerate the implementation of the SDGs.
Finally, Portugal is seeking to incorporate a PCSD perspective into its national development plans and strategies, with PLANAPP providing support to members of the government in the co-ordination of domestic implementation of the 2030 Agenda. The RNDS 2030, particularly, can be seen as the first manifestation of such incorporation, seeking alignment with the broader SDGs. The design and programming of financing instruments, including guidelines or regulations, might also serve as co-ordination mechanisms to ensure that ministries and agencies align with sustainable development objectives.
PLANAPP's ongoing mapping exercise supports policy integration and enhances PCSD
PLANAPP's ongoing mapping exercise shows the executive’s willingness and commitment to ensure Portugal's policymaking is more integrated, systematic, and focused on achieving sustainable development outcomes. It represents a strategic effort to strengthen policy integration and coherence for sustainable development in Portugal. It addresses key challenges, develops practical tools and frameworks, and fosters institutional collaboration to ensure that Portugal's policies and strategies are aligned with the SDGs and capable of addressing the complex challenges of sustainable development.
A crucial element of the mapping exercise involves analysing policy instruments to determine their alignment with the SDGs. However, this analysis revealed that most policy instruments do not explicitly reference the SDGs they are related to, indicating a gap in policy design and evaluation that the exercise aims to address. The policy mapping exercise includes creating methodologies for assessing the alignment of policies with the SDGs, understanding the transboundary and global impacts of policies, and evaluating intergenerational impacts. This is work in progress.
Another significant aspect of the exercise is the emphasis on capacity building and knowledge sharing across government entities. PLANAPP aims to support other government bodies in developing their strategic planning capabilities, particularly in incorporating SDG alignment into their policy-making processes. This involves providing guidance, resources and training to ensure that sectoral strategies are coherent with national priorities and SDGs.
One expected outcome of the mapping exercise will be improved institutional co-ordination and collaboration (PCSD Principle 4). By clearly defining the roles and responsibilities of different entities involved in strategic planning and policy coherence, the exercise aims to enhance the efficiency and effectiveness of Portugal's approach to sustainable development.
Lastly, the mapping exercise explores mechanisms for ongoing monitoring and evaluation of policy coherence and alignment with the SDGs (PCSD Principle 8). This involves developing indicators and metrics to assess progress, identify gaps and make necessary adjustments to ensure that Portugal's strategic planning efforts are on track to achieve sustainable development outcomes.
PLANAPP acknowledges the existing challenges in achieving policy coherence, such as lack of data and evidence, difficulty in quantifying resources by SDG, lack of systematic tools for analysing policy trade-offs and spillovers, and the need for more robust capacity building and technical support for policy formulation and alignment with the SDGs.
Gaps
There is scope to advance the integration of PCSD into national development plans and financing
The integration of a PCSD perspective into national development plans, strategies and financing frameworks is an area of ongoing progress. The Portugal 2030 Strategy and the RRP demonstrate limited alignment with the SDGs, with potential for a broader and more consistent application of these principles across all planning and financial instruments.
Currently, there is no formal PCSD strategy, mechanism, or set of guidelines to systematically ensure that sectoral policies align with the SDGs. This suggests that while sustainability principles are embedded within various strategies and plans, opportunities exist to strengthen the systematic incorporation of a PCSD approach across all national and sectoral frameworks. Additionally, the strategic use of the budget process to manage synergies and trade-offs between different SDGs could be further developed and consistently applied across all sectors.
Regional and territorial integration for effective SDG implementation could be made more consistent across the country
There is a recognised need and ongoing efforts to integrate regional and territorial development within sectoral policies to support SDG implementation. However, there is potential for more consistent application across all regions and local contexts. This would allow for a fuller utilisation of regional strengths and a more targeted response to specific local challenges, all within the framework of SDG targets.
The process of aligning policy objectives with financial resources is complex
Portugal currently does not have a dedicated budget specifically allocated for sustainable development initiatives. The development of performance budgeting will greatly assist the government in being able to measure the impact of spending on strategic sustainable development results. Additionally, co‑ordination for measuring the impact of programme spending on composite SDGs could be strengthened to ensure more coherent tracking. This may lead to funding gaps for critical projects and a lack of prioritisation of sustainable development in the overall financial planning process.
The preparation of the VNR underscored the importance of co-ordination among budget programme entities to provide regular information on actions contributing to the SDGs. Although a decree-law was approved in July 2023 (Government of Portugal, 2023[15]) to establish a comprehensive monitoring regime for SDG-related actions, the effectiveness of these mechanisms is still to be assessed.
Opportunities exist to improve co-ordination and integration mechanisms for development finance
While Portugal has initiated several measures to diversify resources for sustainable development, such as leveraging EU funds and focusing on renewable energy investments, the analysis in this report suggests there might be gaps in fully adopting a whole-of-government approach that encompasses a wider range of financial and non-financial drivers, including private investment, remittances and philanthropy, as well as enhancing trade and corporate business models for sustainability.
Possible ways ahead
Enhance the strategic use of budgeting and public procurement processes by explicitly linking them with sustainable development objectives, while aligning them with corresponding objectives in sectoral strategies. This would help to prioritise sustainable development projects and facilitate targeted investments towards achieving the SDGs.
Develop guidelines and tools that embed sustainability criteria into these processes to manage synergies and trade-offs more effectively across sectors and levels of government.
Ensure regular, quarterly provision of detailed information by co-ordinating entities of budget programmes. Consistent and accurate information sharing will enhance the monitoring and evaluation process, enabling effective tracking of progress towards SDG targets.
Strengthen the integration of regional and territorial development into sectoral policies by promoting local initiatives that align with national sustainability goals. Encourage regional planning and development efforts explicitly linked to the SDGs to enhance local engagement and effectiveness in achieving sustainable outcomes.
Encourage innovation and collaboration across all sectors and levels of government to amplify the impact of sustainable development efforts.
Foster partnerships with the private sector for investment, leverage remittances and philanthropy and promote sustainable trade and corporate practices.
The 2030 Agenda calls for deepened stakeholder engagement and greater involvement of parliamentarians to strengthen national ownership of development plans and budgets. Parliaments play an essential role at all levels of government by enacting laws, adopting budgets, and ensuring accountability, as well as national plans and strategies, for the effective achievement of the SDGs. They also serve as an interface between citizens and state institutions.
This section assesses the extent to which Portugal has mechanisms for stakeholder engagement and parliamentary consideration of PCSD, in line with Principle 6 of the PCSD Recommendation, which calls for engaging stakeholders effectively to sustain broader support for PCSD and its implementation. To this end, adherents should, as appropriate:
a) engage proactively with stakeholders in different phases of the policy cycle, including through the exchange of knowledge and expertise, to develop and prioritise initiatives for enhancing PCSD, making specific efforts to reach out to the marginalised and vulnerable groups in society and to advance inclusive social and economic development, in line with the aspirations of the SDGs
b) work with stakeholders to raise public awareness and mobilise support on sustainable development and government commitments supporting PCSD, through campaigns, policy dialogue, capacity building and information sharing.
Strengths
Portugal’s parliament contributes to inclusive policymaking for sustainable development
Portugal’s parliament, or Assembly of the Republic, has a well-established system to ensure compliance with the Constitution and laws. This includes various mechanisms, such as appreciation of the Government Programme, motions of confidence and censure, plenary debates, committee hearings and parliamentary inquiries. Regular debates with the prime minister and other ministers ensure continuous supervision and accountability. These debates cover a wide range of issues, including the State of the Nation and Portugal’s role in the European Union, which are crucial for comprehensive policy oversight. Parliamentary committees play an active role in overseeing government activities. They conduct hearings with ministers and other relevant entities multiple times per legislative session, ensuring detailed scrutiny of policies and actions.
The Assembly of the Republic consists of a chamber of deputies representing all Portuguese citizens. It is one of the two elected sovereign bodies outlined in the Constitution, alongside the President of the Republic, and serves as the "representative assembly of all Portuguese citizens". Deputies are elected by direct and secret universal suffrage. The assembly represents all Portuguese citizens, acting on their behalf and being accountable to them, including non-voters, those who did not vote, and those who did not support the elected deputies (Assembleia da República, n.d.[20]).
The assembly's comprehensive legislative competence allows it to incorporate sustainable development perspectives into national policies, ensuring alignment with both domestic and international parameters. This includes the ability to legislate on critical areas such as education, social security and environmental policy, which are essential for sustainable development. Also, it actively engages stakeholders in the 2030 Agenda via public hearings, inquiries and online consultations. One key tool in this process is the government's public consultation portal, ConsultaLex (Government of Portugal, n.d.[21]). This portal, accessible to all citizens, allows for participation in the legislative and regulatory process by consulting proposed decrees and making suggestions. A dedicated working group on sustainable development analyses issues and advises the government. Furthermore, recognising the importance of localised development, parliament ensures that policies are tailored to regional and local contexts.
To align national policies with the SDGs, parliament assesses the impact of proposed laws and conducts debates on Agenda 2030 topics. As part of this process, a regulatory impact assessment (RIA) is conducted prior to the adoption of any law, decree-law or regulatory decree. This assessment quantifies the foreseeable impacts of the legislation across the three dimensions of sustainable development: economic, social, and climate action. Box 3.3 provides examples of parliamentary oversight for sustainable development in Germany and Finland.
The German Parliamentary Advisory Council on Sustainable Development has driven sustainability and sustainable development to the parliament level. Within parliament, the Advisory Council plays a monitoring role. It creates an alert when an initiative does not align with the National Sustainability Strategy. By initiating hearings and publishing position papers, the Advisory Council catalyses discussions, enriching parliamentary discourse and establishing itself as a dynamic and integral component of the legislative process.
In Finland, the government submits annual reports to parliament on progress towards sustainable development. The Committee for the Future prepares the parliamentary response, which includes an assessment of compliance and suggestions for further action. In the subsequent annual reports, the government is then required to report on the measures taken to implement the parliament's position.
Source: Fetting (2021[22]), Parliamentary Mechanisms in the Implementation of the 2030 Agenda, https://www.esdn.eu/fileadmin/ESDN_Reports/ESDN_Report_August_2021_Parliaments_and_SDGs_Final.pdf; Deutscher Bundestag (n.d.[23]), Parliamentary Advisory Council on Sustainable Development, https://www.bundestag.de/en/committees/bodies/sustainability.
For example, in 2020, the Council of Ministers Resolution No. 53/2020 of 10 July (Government of Portugal, 2020[24]) approved the National Energy and Climate Plan 2030 (PNEC 2030). This plan defines the goals and strategies for Portugal to achieve carbon neutrality by 2050, which aligns with the Paris Agreement. This plan, updated through the Council of Ministers Resolution No. 149/2024 (Government of Portugal, 2024[25]), is a policy instrument for achieving Portugal's energy and climate goals by 2030. It determines objectives, targets and measures to reduce greenhouse gas emissions and lays the foundation for an accelerated energy transition.
Another example is the 2050 Carbon Neutrality Roadmap (RNC 2050), approved through the Council of Ministers Resolution No. 107/2019 (Government of Portugal, 2019[26]). This is Portugal's strategic framework for achieving carbon neutrality by mid-century. While the RNC 2050 defines long-term strategies for achieving carbon neutrality, the PNEC 2030 focuses on short- and medium-term actions to ensure that the critical decade 2021-30, identified as pivotal for reducing emissions, delivers on the roadmap's ambitions. Together, these plans form a cohesive framework for Portugal's energy and climate policies.
Additionally, the assembly's supervisory role ensures that the government's actions are consistently monitored and evaluated, fostering accountability and transparency in implementing sustainable development strategies.
Stakeholder engagement occurs at various stages of the policy cycle and across different policy domains
The National Roadmap for Sustainable Development (NRSD), currently under review by the government, outlines Portugal's goals and planned actions for sustainable development, including public engagement strategies. Portugal's efforts to engage with stakeholders, especially in the context of the 2030 Agenda, are characterised by including civil society and other non-governmental actors in the planning and implementation phases of sustainable development policies. The Ministry of Foreign Affairs spearheaded the co-ordination efforts to establish Portugal's national position during the drafting of the 2030 Agenda, suggesting an ongoing role in co-ordinating stakeholder engagement around the SDGs.
For instance, the creation of the National Council for the Environment and Sustainable Development (CNADS) demonstrates a structured approach to integrating diverse stakeholder perspectives into the policy-making process. It serves as a platform for dialogue and consultation, engaging a wide range of actors, including NGOs, academic institutions and representatives from vulnerable communities, and fostering regional and international co-operation to address shared challenges effectively.
Portugal's focus on education for sustainable development, as exemplified by the National Strategy for Education for Citizenship, highlights an effort to embed sustainability principles across different societal strata, including efforts to reach marginalised and vulnerable groups. By integrating these principles into education, Portugal is laying the groundwork for inclusive social and economic development that aligns with the aspirations of the SDGs.
The focus on promoting sustainable consumption and production patterns, along with the emphasis on circular economy principles, represents another strategy for engaging the public and stakeholders in a dialogue about sustainable development. These initiatives are accompanied by campaigns, policy dialogues, capacity-building exercises and information-sharing efforts designed to foster a widespread understanding and commitment to sustainability goals. For example, the Ministry of Environment and Climate Action website contains information on government initiatives related to sustainable consumption, production and the circular economy.
Moreover, Portugal's active involvement in the European Union's sustainable development framework enhances policy coherence at both national and international levels. The strategic engagement of multiple stakeholders, including public, private and civil society sectors, underscores Portugal's commitment to a multidimensional and inclusive approach to sustainable development.
Engaging vulnerable and marginalised groups through the National Strategy for Combating Poverty
Portugal has taken significant steps in addressing poverty as a national priority through the National Strategy for Combating Poverty (ENCP), which emphasises participatory and inclusive approaches to policymaking. A key initiative under the ENCP is the Roadmap for Participatory Monitoring and Evaluation of Public Policies, developed collaboratively by PLANAPP, the Institute of Social Sciences of the University of Lisbon (ICS-UL), and other partners.
The pilot project for this roadmap identified critical ENCP focus areas, such as reducing child and youth poverty, fostering youth integration into society, enhancing employment and qualifications, improving social inclusion policies, ensuring territorial cohesion, and making poverty eradication a national commitment. These efforts were supported by establishing a Consultative Forum, which included civil society organisations working closely with target populations to identify key areas for monitoring and evaluation.
Through participatory methodologies like Living Labs and multi-stakeholder dialogues, the ENCP provides a flexible and dynamic framework for engaging marginalised groups, ensuring their voices are heard in the policy-making process.
Gaps
Engaging with stakeholders can be more proactive and go beyond information sharing and consultations
Portugal's efforts to engage stakeholders, particularly NGOs, can be noted, especially in policy areas like climate change and the ocean. As previously mentioned, ConsultaLex (Government of Portugal, n.d.[21]) allows all citizens to participate in the legislative and regulatory process. However, the engagement tends to be more reactive and oriented towards sharing information or consulting on already developed policies rather than actively co-creating policies from the outset. It primarily occurs in the later stages of the policy cycle, such as during the implementation or monitoring phases.
This reactive approach limits the potential for incorporating diverse perspectives and expertise from various stakeholders, including marginalised and vulnerable groups, at crucial early stages where their input could significantly shape policies for more inclusive and sustainable development. It also misses out on leveraging the knowledge, expertise and experiences of all stakeholders. The challenges in implementation at the local levels and among different stakeholder groups indicate a need for more structured and inclusive engagement strategies that ensure all voices are heard and considered in policymaking.
Portugal could take steps to enhance public awareness of sustainable development and PCSD to reach marginalised groups
While there are public awareness campaigns and initiatives aimed at informing citizens about sustainable development, these efforts could be more widespread and systematic and highlight timely PCSD issues. Expanding the reach of public awareness strategies and tailoring them to specific groups, including marginalised and vulnerable populations, would foster greater inclusivity and ensure no one is left behind. Strengthening public engagement and awareness strategies could also help foster broader societal support for PCSD initiatives, creating a shared understanding and commitment to sustainable development principles and goals across all sectors of society.
Although the ENCP has made notable efforts to involve vulnerable and marginalised groups through participatory approaches like the Consultative Forum and Living Labs, such initiatives could be scaled up and replicated in other policy domains to ensure comprehensive inclusion. Despite efforts to reach out to all citizens, marginalised and vulnerable groups may still be underrepresented in implementation efforts, potentially leaving these communities without a voice in the sustainable development agenda.
Additionally, recent international crises have impacted the ability to fully achieve and mobilise support for the SDGs, creating setbacks in progress, as highlighted in the VNR 2023. Continued prioritisation of targeted, inclusive initiatives like those under the ENCP could help Portugal overcome these challenges, ensuring that vulnerable groups are meaningfully included in the sustainable development process.
Possible ways ahead
Adopt more proactive strategies to involve a wide range of stakeholders, including NGOs, civil society organisations, the private sector, and marginalised groups, from the initial stages of the policy cycle (ox 3.4). Planned initiatives to involve citizens in foresight activities, for example are a step in the right direction. The 20 May workshop also underlined the need for PLANAPP to adopt a more deliberate, explicit multi-stakeholder approach to pursuing government-wide PCSD, including with regional and local authorities across the country. Set up multi-stakeholder platforms or working groups that contribute to policy formulation, implementation and evaluation, ensuring that policies are responsive to the needs and aspirations of all societal groups.
Involve local and regional stakeholders to bring awareness of differences in regional attributes, strengths and challenges to the national sustainable development policy table to ensure that policies are effectively localised and meet regional needs. A relevant mechanism that could operationalise this is the Regional Contract Programme (Government of Portugal, 2024[27]), which could be leveraged further to align national objectives with regional implementation. This programme can strengthen regional participation in shaping and achieving development goals by establishing objectives, targets and indicators, several of which are directly related to sustainable development.
Implement comprehensive, ongoing public awareness campaigns that clearly communicate the importance of sustainable development and PCSD to build broader public support.
Leverage various media platforms designed to resonate with different audiences, including youth, marginalised communities and the broader public.
Organise capacity-building and information-sharing initiatives, such as workshops, seminars, and online platforms that provide resources and tools to understand and implement sustainable practices so as to empower stakeholders to actively contribute to PCSD objectives. A possible way is to advance the Public Policy Training Programme by INA and PLANAPP (INA, 2024[7]).
Pioneering inclusive stakeholder engagement in Finland
Finland has long been recognised for its inclusive approach to policymaking, notably through its broad engagement with stakeholders in the early phases of the policy cycle. The Finnish National Commission on Sustainable Development, led by the prime minister, is a key platform for this, including representatives from government, businesses, NGOs, academia and civil society. This early and continuous engagement ensures that diverse perspectives are integrated from the outset. Finland also excels in raising public awareness about sustainability through educational initiatives and public campaigns. The Finnish Society's Commitment to Sustainable Development offers a framework for organisations and individuals to contribute to sustainability, facilitated by extensive communication efforts to ensure widespread participation and understanding.
Co-creation and partnership in policy development in Sweden
Sweden's approach to sustainable development is characterised by co-creation and strong partnerships between the government, civil society and the private sector. The Swedish Environmental Protection Agency and the Swedish International Development Cooperation Agency (Sida) facilitate numerous initiatives where stakeholders actively participate in shaping and implementing sustainability policies. This collaborative approach extends to international partnerships, emphasising global responsibility. Sweden also places a strong emphasis on education and capacity building as central to its sustainability strategy. Initiatives like the Swedish Institute's leadership programmes on sustainability and the extensive resources available through government platforms ensure stakeholders are well-informed and equipped to contribute to sustainability goals.
Fostering stakeholder engagement and public participation in Germany
Germany's National Sustainable Development Strategy involves stakeholders from its inception through regular progress reviews. This includes structured dialogues, public consultations, and incorporating feedback into policy revisions, ensuring that policies reflect a wide range of perspectives. Germany has also implemented various initiatives to educate the public and raise awareness about the importance of sustainable development. This includes partnerships with educational institutions, NGOs and the media to disseminate information and engage the public in sustainability initiatives.
Sources: Finnish National Commission on Sustainable Development (2025[28]) Frontpage, https://kestavakehitys.fi/en/frontpage; Finnish National Commission on Sustainable Development (n.d.[29]), Society’s Commitment to Sustainable Development, https://kestavakehitys.fi/en/commitment2050; SIDA (n.d.[30]), The Swedish International Development Cooperation Agency, https://www.sida.se/en; Swedish Environmental Protection Agency (n.d.[31]), Towards a better environment, https://www.naturvardsverket.se/en/; Swedish Institute (n.d.[32]), SI Leadership Programmes, https://si.se/en/apply/si-leadership-programmes/; Government of Sweden (2021[33]), Voluntary National Review 2021 Sweden: Report on the Implementation of the 2030 Agenda for Sustainable Development, https://www.government.se/globalassets/government/dokument/regeringskansliet/agenda-2030-och-de-globala-malen-for-hallbar-utveckling/voluntary-national-review-vnr/voluntary_national_review_2021_sweden_report_on_the_implementation_of_the_2030_agenda_web.pdf; Federal Government of Germany (2021[34]), German Sustainable Development Strategy Update 2021, https://www.bundesregierung.de/resource/blob/974430/1940716/8943e3f421a7a0d8bcd06a1cc66e92d0/2021-07-26-gsds-en-data.pdf?download=1.
The effective implementation of policies requires coherence both between sectors and between levels of government.
Specifically, PCSD Principle 4 calls for ensuring whole-of-government co-ordination to identify and mitigate divergences between sectoral priorities and policies, including external and domestic policies, and promote mutually supporting actions across sectors and institutions (e.g. horizontal coherence). To this end, adherents should, as appropriate:
a) use high-level co-ordinating mechanisms, whether located within the centre of government or a lead line ministry, as appropriate, to promote PCSD and the integration of sustainable development across central agencies, line ministries and other public institutions
b) establish clear mandates, capacities and mobilise adequate resources, as appropriate, for PCSD to identify policy divergences and conflicts related to the implementation of the 2030 Agenda
c) encourage formal governance arrangements and informal working methods that support effective communication between ministries and departments and between ministries and other public sector bodies under their aegis
d) build capacity in public administrations for PCSD and align training strategies and programmes for public actors with the principles and integrated nature of the SDGs.
Principle 5 calls for engaging appropriately sub-national levels of government in areas where they have a role in policy co-ordination to promote co-ordinated actions and enhance coherence across levels of government for sustainable development (e.g. vertical coherence). To this end, adherents should, as appropriate:
a) promote PCSD at different levels of government and work with key stakeholders to develop tools that support local and regional governments in applying PCSD in their legal frameworks, plans and actions for localising the SDGs
b) promote synergies among national, regional and local policies to better align with and contribute to relevant economic, social and environmental goals, including international commitments and international development co-operation objectives, within the scope of their responsibilities and in a balanced manner.
Strengths
Portugal has a structure for high-level whole-of-government co-ordination in place
The Decree-Law No. 96/2024 (Government of Portugal, 2024[35]) dissolves the Secretariat-General of the Presidency of the Council of Ministers (SGPCM) through a merger, transferring its responsibilities and competencies to various government services and entities while regulating the reassignment of its workers. It also reallocates specific responsibilities related to cultural strategy, planning and incentives for social communication to the Secretariat-General of the Government (SG-Gov) and addresses the reorganisation of several other entities, such as the Directorate-General for Books, Archives, and Libraries (DGLAB), and the Strategy, Planning, and Cultural Evaluation Office (GEPAC). Additionally, it modifies the legal frameworks for several organisational structures, ensuring an efficient integration of transferred functions and personnel.
The Council of Ministers Resolution No. 5/2023 (Government of Portugal, 2023[1]) delegates the responsibility for co-ordinating and monitoring the SDGs to the member of the government responsible for the Presidency of the Council of Ministers. This approach places the co-ordination at a high level within the government structure, ensuring that sustainable development is a central concern across all policy areas.
In line with the updated Decree-Law No. 96/2024, PLANAPP will succeed SGPCM in key areas, including supporting sectoral decision-making through strategic and prospective exercises and overseeing the implementation of the 2030 Agenda and the SDGs. The decree also outlines the transfer of responsibilities to various integrator services and entities, with some undergoing restructuring, and establishes criteria for selecting personnel to fulfil these roles within PLANAPP.
The resolution also promotes formal governance arrangements through the creation of a high-level committee to monitor and evaluate the implementation of the SDGs. This committee includes representatives from various levels of government and sectors, facilitating formal communication across different parts of the public sector.
PLANAPP is a key actor for ensuring SDG co-ordination and driving PCSD
As previously mentioned, under Decree-Law No. 96/2024, Portugal has restructured its centre-of-government co-ordination mechanisms and PLANAPP now assumes greater responsibilities. PLANAPP is tasked with supporting sectoral decision-making by producing strategic and prospective analysis, ensuring informed decisions and leading the implementation of the 2030 Agenda and the SDGs. This shift reflects a more integrated and co-ordinated approach to policy coherence, with various entities, such as SG-Gov, the Public Administration Shared Services Entity (ESPAP), and the State Legal Center (CEJURE), involved in the process. Additionally, personnel selection for PLANAPP will focus on expertise in innovation, strategy, and monitoring, as well as on promoting alignment with the SDGs across government operations. The restructuring process emphasises the need for greater coherence and technical support for sustainable development within government policies.
In addition, PLANAPP's competencies, according to the Council of Ministers Resolution No. 5/2023 (Government of Portugal, 2023[1]), include co‑ordinating the promotion of societal engagement with the 2030 Agenda and the SDGs, ensuring active participation across all levels of government and society. It is responsible for developing a National Sustainable Development Roadmap for 2030, aligning national strategic instruments with the SDGs and other European commitments. PLANAPP also identifies, maps and monitors public policy plans that contribute to the SDGs, ensuring global coherence. Additionally, PLANAPP co-ordinates the reporting activities on the implementation of the 2030 Agenda, supports the preparation of international progress reports, and facilitates collaboration among public, private and civil society sectors to evaluate the impact of SDG implementation. Furthermore, PLANAPP, in co-ordination with SGPCM, defines and implements a common communication strategy for the SDGs.
PLANAPP is also identified as the analytical backbone for advancing policy coherence. However, it faces challenges, such as the lack of data and evidence, for example, on transboundary impacts of policies and insufficient technical capacity. In response, PLANAPP has developed a comprehensive training programme for public administration professionals with INA (INA, 2024[7]), which aims to enhance the capabilities needed to effectively integrate sustainable development into policymaking. The training programme includes a series of modules, such as “Introduction to Public Policies”, “Prospective”, “Planning”, “Design and Programming”, “Monitoring”, and “Evaluation”. These modules, which incorporate practical case studies, webinars, workshops and talks, focus on strengthening the public administration’s ability to design more robust and adaptable policies. PLANAPP's efforts to align policy instruments with the SDGs, despite most instruments not explicitly referencing them, highlight the ongoing process of integrating sustainable development into policymaking.
PLANAPP's engagement in developing tools and frameworks for policy coherence analysis and its responsibility for the REPLAN network also underscores its role in enhancing inter-ministerial co-ordination and knowledge sharing. This network, comprising planning and foresight teams from multiple entities, facilitates the sharing of work and the co-ordination of efforts related to the 2030 Agenda and PCSD. INA ensures that this collective knowledge is transferred to capacity building programmes for all public officials, including through the Sustainability Pathway with different thematic modules under the SDGs competence framework.
For co-ordinating the external dimension of sustainable development, the Camões Institute, linked to the Ministry of Foreign Affairs, is pivotal in promoting the Portuguese language and culture globally and in implementing international co-operation projects.
Capacity building within public administrations supports more coherent implementation
Portugal has a number of initiatives aimed at building capacity within public administrations for integrating the SDGs into policymaking and implementation processes. For instance, the development and dissemination of guidelines and tools, such as the recent Public Policy Training Programme (INA, 2024[36]) organised by INA and PLANAPP, to assist public sector actors in aligning their activities with the SDGs, reflect Portugal's commitment to enhancing capacity for PCSD.
The aforementioned PICSAP, promoted by the INA, plays a significant role in building civil service capacity. This programme provides specialised training to develop the necessary skills for promoting sustainability, incorporating principles related to the SDGs into training programmes. By focusing on topics such as "Concepts and Principles of Sustainable Development Applied to Public Administration”, "Smart Cities and Sustainability”, "Agenda 2030 – From Strategy to Action: Integrating SDGs with Management Instruments”, and "Leadership for Sustainability", the programme covers various strategic areas, from fundamental concepts to practical implementation strategies.
PICSAP actively promotes awareness of the SDGs, encouraging participants to adopt administrative practices aligned with the sustainability agenda. This approach strengthens individual skills and contributes to creating a more sustainable organisational culture within public administration. Interviews with innovators and sustainability experts, as well as innovation workshops, complement PICSAP, providing a holistic approach to capacity building and SDG integration.
PICSAP also organises webinars on cross-cutting issues and informal meetings like CaféINA to discuss sustainability topics. These play an important role in integrating the SDGs into INA's activities, fostering continuous dialogue and idea exchange among INA members and guests.
A number of laws, strategies and programmes foster vertical coherence
Portugal has a two-tier local and regional system. There are two autonomous regions: the Azores and Madeira. These archipelagos in the Atlantic Ocean have a significant degree of autonomy, with their own legislative assemblies and governments capable of creating laws on diverse matters. In addition, mainland Portugal is divided into 308 municipalities (concelhos), which are the basic units of local government. The municipalities have some administrative power but less autonomy than the Azores and Madeira.
Portugal's local and regional structure is defined by several laws, including the Constitution of the Portuguese Republic, which establishes the basic principles of the local and regional system; the Statutes of the Autonomous Regions, which define the specific powers and responsibilities of each autonomous region; the Law on the Finances of the Autonomous Regions, which stipulates the fiscal and budgetary rules of these regions; and the Law on the Organisation of Local Authorities, which defines the structure and powers of municipalities.
Several key strategies and initiatives support local and regional governments in aligning their legal frameworks, plans, and actions with the SDGs. These include the development of Voluntary Local Reviews (VLRs) by six municipalities (Mafra, Matosinhos, Cascais, Porto, Braga and Torres Vedras), the ODSlocal Platform (ODSlocal, 2022[37]), which involves several partners, including CNADS, the Institute of Social Sciences, University of Lisbon (OBSERVA), Universidade Nova de Lisboa (MARE), and 2adapt, for monitoring and mobilisation, ANMP’s “Municipal Section for the SDGs”, and initiatives to empower local authorities and communities in decision-making processes. This is further outlined in Portugal’s VNR 2023 (Box 3.5).
The ODSlocal Platform, based on a broad and intense mobilisation of municipal decision-makers, technical staff, local agents and citizens around the SDGs of the 2030 Agenda, aims to create a national ODSlocal movement that municipalities wish to join, mobilising other public actors and civil society in an exponential and contagious way. The platform supports a dynamic online portal that makes it possible to visualise and monitor each municipality’s contributions and progress towards the SDGs, with strict quality control of the information, extensive involvement of actors, and capacity building, along with a strong communication strategy.
Regional level
Regional operational programmes: These programmes, part of the broader EU Cohesion Policy framework, are tailored to specific regional needs and explicitly reference the SDGs. They aim to improve regional competitiveness and increase employment while ensuring environmental sustainability and social inclusion.
Azores’ and Madeira’s sustainability plans: Both autonomous regions have developed comprehensive strategies to become sustainable tourism destinations certified by EarthCheck. These plans include specific targets related to environmental sustainability, social inclusion and economic growth, demonstrating an integrated approach to regional development and sustainability.
Local level
Local development strategies: Various municipalities have incorporated SDG targets into their local development plans. For example, Lisbon has developed initiatives focused on urban sustainability, including green infrastructure projects and sustainable mobility plans to reduce carbon emissions and improve quality of life.
Participatory budgeting: Some local governments in Portugal have adopted participatory budgeting processes that allow citizens to decide on public spending projects directly. This engages local communities in decision-making processes and ensures that projects reflect sustainable development priorities, such as education, environmental protection and community health.
National to regional synergy
Recovery and Resilience Plan (RRP): The RRP (Government of Portugal, 2021[38]) has been aligned with regional development strategies to ensure that investments and reforms supported by this plan address both national and regional priorities. For instance, investments in digital infrastructure and healthcare aim to benefit both the centralised national systems and regional health services, ensuring improvements in public services across multiple regions.
National Reform Programme (PNR): The PNR (PlanAPP, n.d.[39]) was a national strategy and planning document that, until 2024, was part of the European Union’s economic and social governance process within the European Semester Cycle, until being replaced by the POENMP. This programme ensured national policies support regional growth and sustainability, addressing specific regional challenges and opportunities. For example, the PNR 2023 describes Portuguese public policies that respond to the country's main economic and social challenges, framed by the Major Options 2022-2026 and in line with the proposal for 2023-26.
National Medium-Term Budgetary-Structural Plan (POENMP): In 2024, the POENMP (PlanAPP, n.d.[39]) replaced the PNR and the Stability Programme (PE). The POENMP sets out budgetary commitments, national reform, and investment priorities for a four-year period, addressing the specific country recommendations directed at Portugal and aligning them with the common EU priorities. It is part of the European Union’s economic governance process, known as the European Semester Cycle. The first POENMP for 2024-28 is designed and presented by the Government of Portugal to the European Commission. Subsequently, the POENMP will be monitored by the Annual Progress Report (RAP) for the next four years until a new plan is developed in 2028. The RAP will be submitted to the European Commission by 30 April each year, following the institutional calendar of the European Semester, ensuring the alignment of public policies across Member States with EU guidelines and policies.
Regional-to-local synergy
Azores’ Sustainability Plan: This plan involves local stakeholders in developing and implementing sustainability projects, such as renewable energy installations and waste management systems. The Azores ensure that local actions contribute to broader environmental and social targets by aligning these projects with regional and national sustainability goals.
Madeira's Smart Island Strategy: This strategy includes initiatives for smart mobility, energy efficiency, and digital transformation, which have been developed in co-operation with local municipalities and private stakeholders. It exemplifies how regional strategies can drive local development while remaining aligned with national objectives for sustainable and smart development.
Cross-level co-ordination
Inter-municipal communities (CIMs): These entities, which consist of groups of municipalities, facilitate co-ordinated regional development initiatives. They serve as a platform for aligning local development plans with regional and national strategies, ensuring that local initiatives, such as tourism development, infrastructure projects, and environmental conservation efforts, are synchronised with larger-scale goals.
Local agendas for sustainability: Several municipalities have developed local sustainability agendas that directly reference and incorporate objectives from the national 2030 Strategy and the European Green Deal. These agendas co-ordinate local actions, such as enhancing public transport, increasing green spaces, and improving waste recycling within the broader national and European context.
Source: Government of Portugal (2023[40]), 2023 Voluntary National Review Portugal, https://hlpf.un.org/sites/default/files/vnrs/2023/Portugal_VNR_Report.pdf.
Mechanisms to engage regions, cities and municipalities on national sustainable development strategies and plans exist
Portugal has established several mechanisms to engage regions, cities and municipalities in formulating and implementing national sustainable development strategies and plans. These mechanisms are designed to enhance the integration and effectiveness of regional development initiatives in line with national sustainability goals.
For example, the Conselho de Concertação Territorial (CCT) serves as a high-level political platform for consultation and co-ordination between the government and various regional and sub-regional entities. It aims to facilitate the alignment of national and local development strategies and to ensure that local perspectives are integrated into national planning processes. The CCT is instrumental in debating issues with territorial dimensions and in analysing matters requiring co-ordination between different levels of territorial administration.
The Comissões de Coordenação e Desenvolvimento Regional (CCDRs), in turn, have been restructured and converted into public institutes with special regimes tasked with co-ordinating regional development and integrating public policies across regions. The Regional Contract Programme (Government of Portugal, 2024[27]) is a significant mechanism in this regard, establishing objectives, targets, and indicators – many of which are directly related to sustainable development. These commissions play a crucial role in linking national policy objectives with regional implementation, ensuring that local needs and conditions are considered in national planning frameworks. The CCDRs are responsible for defining and executing regional development strategies, integrating territorially essential public policies, and managing cohesion policy within regional programming frameworks.
These mechanisms reflect a structured approach to ensuring that regional, city and municipal governments are actively involved in shaping and implementing sustainable development policies. They highlight Portugal's commitment to decentralised governance and the integration of local and regional dimensions into broader national development agendas.
Gaps
Communication and capacity building for effective PCSD implementation could be strengthened further
While formal and informal mechanisms exist to promote horizontal co-ordination and coherence, there is an opportunity to establish more structured, consistent and efficient communication channels between ministries and other public sector bodies. Strengthening these channels would help prevent misalignments and enhance the efficiency of sustainable development policy implementation, maximising opportunities for synergy and collaborative problem solving across sectors.
Capacity building within public administration for PCSD is essential, yet it could be further strengthened. Challenges remain in embedding strategic foresight into planning processes and advancing results-based monitoring and evaluation. Expanding training and skill development in these areas would better equip governmental agencies to implement PCSD effectively.
Regional and local initiatives, capacities and resources differ across the country
Sub-national engagement indicates discrepancies in regional and local capacity, with varying levels of involvement across different regions of Portugal, as evidenced by the Municipal Sustainability Index (ISM) (CESOP Local, n.d.[41]).
While regional plans in areas like the Azores and Madeira demonstrate strong alignment with sustainability goals, other regions may benefit from more comprehensive strategies that integrate national SDG priorities, resulting in varied implementation of the 2030 Agenda across the country. For instance, out of 308 municipalities, only 83 are members of the Municipalities Section for Sustainable Development Goals, established by the National Association of Portuguese Municipalities (ANMP) (ANMP, 2023[42]).
Portugal’s regions and municipalities also display significant differences in resources and capabilities for implementing and monitoring SDG-aligned policies. Smaller or less economically robust municipalities often face challenges executing complex sustainability projects requiring advanced technical skills and substantial financial investment. These disparities in funding for sustainability initiatives contribute to uneven development and can hinder the efficient implementation of SDG-related policies, particularly in less developed areas where investment in infrastructure and services is crucial.
Additionally, establishing a consistent system for data collection and monitoring across all levels of government remains challenging. This inconsistency complicates accurate progress measurement and limits the ability to adapt policies effectively across different regions and municipalities.
The participation of local communities in policy-making processes can be strengthened
Engagement in policymaking at the local level remains limited. Although participatory budgeting and other inclusive practices are in place, there is an opportunity to adopt more systemic and structured approaches to actively involve citizens and local communities in the policy-making process, particularly for sustainability initiatives.
Additionally, public awareness and understanding of the SDGs and the 2030 Agenda at the local level could be strengthened. Increasing community engagement and fostering grassroots initiatives aligned with national goals would further support sustainable development efforts and enhance the collective impact of local contributions.
Possible ways ahead
With regard to horizontal coherence:
Portugal could establish a dedicated co-ordination mechanism for PCSD, with clear mandates and resource allocation.
Moreover, the Council of Ministers Resolution No. 5/2023 (Government of Portugal, 2023[1]) emphasises co‑ordination roles but does not explicitly address resource allocation for these activities, which could be a key factor in fully achieving PCSD objectives. To this end, Portugal could:
Complement PLANAPP’s new and strengthened role with an explicit PCSD mandate and dedicated resources to further enhance its capacity to ensure comprehensive alignment of policies with sustainable development objectives and foster stronger accountability and co‑ordination across government sectors. Currently, PLANAPP’s role in policy coherence is integrated within its wider responsibilities, and it might not have the exclusive authority or resources needed to systematically resolve intersectoral conflicts or address the transboundary impacts of national policies.
Define the roles and responsibilities of each department or agency in promoting PCSD and streamline processes, address overlaps and fill gaps if/where these exist to enhance efficiency and coherence.
Initiate regular meetings between relevant departments, using, for example, existing networks such as REPLAN, to identify synergies and trade-offs and to discuss progress, challenges and opportunities for collaborating on PCSD and ensuring alignment with the 2030 Agenda.
Create a resource allocation plan specifically earmarked for PCSD initiatives, ensuring that resources are directed where they are most needed. Mobilising both financial and human resources, including securing funding and providing training, will enhance the capacity of staff involved in PCSD efforts.
Complement existing training strategies and programmes with targeted modules on PCSD that align with the SDGs’ principles and integrated nature. These modules could be conducted in workshops, online courses and mentoring programmes.
High-level co-ordination and clear mandates for PCSD in Denmark
Denmark has established a high-level co-ordinating mechanism for sustainable development, led by the Danish Council for Sustainable Development. This council advises the government and co‑ordinates across various ministries to ensure that sustainability is integrated into all areas of policymaking.
In addition, clear mandates and resources for PCSD were identified thanks to the establishment of the Danish 2030 Panel, which was established in 2018 and tasked with integrating the SDGs into Danish society and economy. The panel works closely with businesses, organisations and the public sector to promote sustainable practices that align with the SDGs.
Comprehensive governance arrangements for SDG integration in Sweden
Sweden has adopted comprehensive governance arrangements to ensure that the 2030 Agenda is implemented across all levels of government. The Swedish Delegation for the 2030 Agenda, composed of representatives from various sectors, plays a critical role in this by fostering dialogue and collaboration across government entities, civil society and the private sector.
In addition, Sweden has invested heavily in capacity building within its public administration for SDG integration. The government offers extensive training programmes and has developed a guide for integrating the SDGs into municipal and regional planning and operations, thereby strengthening the capacity of local governments to contribute to national SDG efforts.
Sources: Government of Denmark (2021[43]), Voluntary National Review 2021 Denmark, https://sustainabledevelopment.un.org/content/documents/279532021_VNR_Report_Denmark.pdf; Government of Sweden (2021[33]), Voluntary National Review 2021 Sweden: Report on the Implementation of the 2030 Agenda for Sustainable Development, https://www.government.se/globalassets/government/dokument/regeringskansliet/agenda-2030-och-de-globala-malen-for-hallbar-utveckling/voluntary-national-review-vnr/voluntary_national_review_2021_sweden_report_on_the_implementation_of_the_2030_agenda_web.pdf.
With regard to local-level and vertical coherence (Box 3.7 provides inspiration from other countries):
Enhance sub-national engagement through strengthened co-ordination mechanisms, integrated planning and the provision of tools and resources. Build on existing initiatives such as the Section of Municipalities for the SDGs of the National Association of Portuguese Municipalities, the LocalSDG - Municipal Platform on Sustainable Development Goals (odslocal.pt), and the Municipal Sustainability Index (ISM) (CESOP Local, n.d.[41]) to ensure a more balanced level of engagement across all regions.
Create and disseminate practical tools, guidelines and resources to support local and regional governments in applying PCSD principles. This could involve training programmes, best practice guides and technical support for localising the SDGs.
Implement formalised structures for regular dialogue and co-ordination between national, regional and local governments. This could include intergovernmental committees or working groups focused on sustainable development and PCSD.
Promote structures for regular dialogue and integrated planning processes that involve all levels of government from the outset. This will also require the allocation of financial resources to support the implementation and viability of regional sustainable development projects.
Work towards better alignment of national, regional and local policies with economic, social and environmental goals. This could be achieved by adopting a holistic view of policy impacts and seeking to balance different objectives within and across policy areas, as well as establishing clear targets and indicators aligned with the SDGs for regional development projects.
Enhance the engagement of all relevant stakeholders in the policy-making process, including at the regional and local levels. This includes government entities, civil society, the private sector, and local communities. By fostering a more inclusive approach, policies are more likely to be effective, equitable and sustainable.
Provide guidance and support to integrate the SDGs into regional development initiatives, ensuring that regional performance data can be effectively generated and seamlessly integrated into national sustainable development strategies. This could include the development of a standardised national template for local and regional sustainable development performance data generation, ensuring consistency and comparability across regions.
Participants in the 20 May workshop stressed the importance of these points related to both horizontal and vertical coordination. In particular, they pointed to the need to strengthen SDG localisation capacity through more robust vertical coordination efforts and suggested, for example, that PLANAPP engages more formally and deliberately with the CCDRs. To this end, PLANAPPs enabling legislation and mandate could be assessed with a view to ensure that it can effectively drive PCSD at both the national and local levels.
Integrating the SDGs at all levels of government in Sweden
Sweden has established formal co-ordination mechanisms that facilitate dialogue and collaboration across national, regional and local governments. The Swedish Association of Local Authorities and Regions plays a critical role in this, supporting municipalities and regions in integrating the SDGs into their strategic planning and operations. Moreover, Sweden encourages integrated planning processes through its National Strategy for Sustainable Development and the VLR process, where municipalities and regions assess their SDG progress. This approach ensures coherence between national priorities and local action.
Supporting local and regional governments in SDG implementation in Canada
The Federation of Canadian Municipalities (FCM) provides local governments with tools, resources and funding to support their sustainable development initiatives. The FCM's initiatives, such as the Green Municipal Fund, offer municipalities financial support and technical assistance for projects that advance the SDGs. Canada promotes synergies between different levels of government through its Federal Sustainable Development Strategy, which is aligned with the SDGs. The strategy encourages collaboration across federal, provincial/territorial and municipal governments, ensuring that efforts are complementary and mutually reinforcing.
Enhancing sub-national engagement in sustainable development in Germany
Germany’s National Sustainable Development Strategy outlines the roles of different government levels in achieving the SDGs. The strategy emphasises the importance of co-ordination between the federal government, Länder (states) and municipalities, supported by the German Council for Sustainable Development (RNE), which advises on policy coherence and engagement strategies. Germany also supports integrated planning by encouraging Länder and municipalities to develop their own sustainability strategies that align with national goals. The German government also facilitates peer learning and the exchange of best practices among sub-national entities through workshops and conferences.
Fostering local action and participation for SDGs in Finland
Finland has taken significant steps to involve local and regional governments in sustainable development through the VLRs, inspired by the VNRs at the United Nations High-Level Political Forum. Cities like Helsinki have led the way in conducting VLRs, which serve as a comprehensive review of SDG progress at the local level, fostering greater transparency, accountability and stakeholder participation. In addition, the Finnish government supports local and regional governments with guidelines, training and digital platforms dedicated to SDG implementation, facilitating the sharing of resources and best practices across different government levels.
Sources: Government of Sweden (2017[44]), Sweden and the 2030 Agenda: Report to the UN High-Level Political Forum 2017 on Sustainable Development, https://www.government.se/contentassets/400a118a14b94750a61e42b620a9def9/sweden-and-the-2030-agenda--report-to-the-un-high-level-political-forum-2017-on-sustainable-development.pdf; Government of Sweden (2021[33]), Voluntary National Review 2021 Sweden: Report on the Implementation of the 2030 Agenda for Sustainable Development, https://www.government.se/globalassets/government/dokument/regeringskansliet/agenda-2030-och-de-globala-malen-for-hallbar-utveckling/voluntary-national-review-vnr/voluntary_national_review_2021_sweden_report_on_the_implementation_of_the_2030_agenda_web.pdf; FCM (2024[45]), Federation of Canadian Municipalities, https://fcm.ca/en; Government of Canada (2024[46]), 2022 to 2026 Federal Sustainable Development Strategy, https://www.canada.ca/en/environment-climate-change/services/climate-change/federal-sustainable-development-strategy.html; Federal Government of Germany (2022[47]), Germany’s Sustainable Development Strategy, https://www.bundesregierung.de/breg-en/issues/sustainability/germany-s-sustainable-development-strategy-354566; Federal Government of Germany (2021[34]), German Sustainable Development Strategy Update 2021, https://www.bundesregierung.de/resource/blob/974430/1940716/8943e3f421a7a0d8bcd06a1cc66e92d0/2021-07-26-gsds-en-data.pdf?download=1; Government of Finland (2020[8]), Voluntary National Review 2020 Finland: Report on the Implementation of the 2030 Agenda for Sustainable Development, https://sustainabledevelopment.un.org/content/documents/26261VNR_Report_Finland_2020.pdf.
This section analyses Portugal’s mechanisms to address policy and financial impacts as per Principle 7 of the PCSD Recommendation and its monitoring, reporting and evaluation systems as per Principle 8.
Specifically, Principle 7 calls for analysing and assessing policy and financing impact to inform decision-making, increase positive impacts and avoid potential negative impacts on the sustainable development prospects of other countries, particularly developing countries. To this end, adherents should, as appropriate:
a) introduce, where possible, regular assessments to identify and assess potential positive and negative impacts on sustainable development, building on any existing tools such as regulatory, environmental, gender and social impact and strategic assessments
b) adopt ex ante and ex post impact assessment practices that take into account transboundary impacts, paying particular attention to the economic, social, gender and environmental impacts on developing countries as well as the promotion and protection of human rights.
Principle 8 calls for strengthening monitoring, reporting and evaluation systems to collect qualitative and quantitative evidence on the impact of policies and financing and reporting progress on PCSD. To this end, adherents should, as appropriate:
a) monitor and report back on policy and financing impacts, drawing on national, regional and local sources, where available, and publish regular reports about progress on PCSD, outlining progress made on addressing impacts on sustainable development at home and abroad
b) identify existing reliable and timely data, indicators and information that can help better capture economic, social and environmental externalities imposed beyond national borders (transboundary impacts); and understand the country’s contribution towards global efforts for implementing Agenda 2030
c) report regularly on PCSD and, where needed, build capacity and skills to strengthen data collection, management, storage, and reporting processes
d) embed a policy coherence dimension in evaluation systems to inform decision-making regarding the linkages and potential trade-offs between sectoral policies, as well as transboundary impacts.
Strengths
Structures for monitoring and reporting on SDG progress exist
In Portugal, the responsibility for monitoring and reporting on sustainable development and strengthening data collection, management, storage, and reporting processes lies with several key entities, notably the High-Level Monitoring Committee (HLMC), which oversees the overall implementation of the 2030 Agenda in Portugal. This committee includes representatives from the presidency, the Ministry of Foreign Affairs, regional governments and local authorities. Statistics Portugal (INE), in turn, plays a central role in the statistical monitoring and reporting on SDG progress, while INA ensures the dissemination of knowledge within the public administration.
Portugal reports on global SDG indicator 17.14.1 Number of countries with mechanisms in place to enhance PCSD
The majority of UN member states have not yet reported on global SDG indicator 17.14.1 Number of countries with mechanisms in place to enhance policy coherence of sustainable development. Portugal’s reporting on this indicator in 2022 is thus encouraging and reflects a tangible commitment to PCSD. According to data submitted to UNEP in 2022, Portugal scored 42.5% on the composite scale, placing it above many non-reporting countries, but below the benchmark of full institutional maturity. This score was based on a self-assessment completed by the Portuguese Ministry of Finance.
Although the UNEP methodology foresees biennial reporting starting in 2020, Portugal has only reported once - missing the expected submissions in 2020 and 2024. As a result, the 2022 data may no longer accurately reflect the current institutional landscape, including potential improvements or innovations introduced since 2022.
Portugal employs a RIAs in the legislative process
PLANAPP, established by Decree-Law No. 21/2021, plays an important role in supporting the government in RIA, including the technical analysis of impact studies conducted by the European Commission and the preparation of studies and reports for evaluating legislative and regulatory acts. This work is relevant in estimating the benefits and burdens on citizens, businesses and public services, thus significantly contributing to the formulation and monitoring of public policies. Within this framework, the Multidisciplinary Team for Evaluation and Impact Analysis (EMAAI; previously named Multidisciplinary Team for Policy and Legislative Impact Assessment, EMAPIL) is responsible for promoting the evaluation of public policies and planning instruments, focusing on their effects and results, and ensuring the efficient use of resources. EMAAI's duties encompass the preparation of reports to estimate the preliminary impact of legislative acts, the analysis of RIAs from the European Commission, capacity building in policy evaluation, collaboration with relevant entities, and support in identifying and quantifying economic, social and environmental impacts. Additionally, EMAA assists in analysing and validating direct costs arising from legislative proposals and other normative acts.
Portugal has integrated RIAs into its legislative process to evaluate new laws and regulations' potential economic, social and environmental impacts. This tool is crucial for ensuring that new policies contribute positively to the SDGs. For example, the VNR mentions the use of RIA in the context of developing legislation, which is used to assess the impacts of legislative proposals on various sectors and stakeholders.
Portugal has also developed national strategies on key issues such as climate change, with specific actions aimed at mitigation and adaptation. These strategies often involve assessments to understand their potential impacts on sustainable development, ensuring that efforts contribute positively to both national and global sustainability goals.
There is a commitment to global frameworks and implicit consideration of transboundary impacts
While Portugal does not explicitly detail practices regarding RIA and ex post evaluation impact assessments focusing on transboundary impacts, there is a commitment to global frameworks, and the government’s active role in international co-operation suggests a broader consideration of the impacts of its policies beyond its borders. The focus on climate change adaptation and mitigation, as well as engagement in international environmental agreements, indicates an awareness of the global nature of many sustainability challenges.
The Council of Ministers Resolution No. 121/2022 of 9 December (Portuguese Development Cooperation Strategy, PDCS 2030), as the reference framework for the implementation of public policy on international development co-operation, outlines an ambitious and geopolitical vision to respond to the main challenges at international level and for the sustainable development of partner countries, providing national and international coherence to these efforts and reinforcing political commitment in this matter.
In this line, Portugal demonstrates its commitment to global frameworks and the implicit consideration of transboundary impacts through its Portuguese Co-operation Strategy 2030 (ECP 2030). This guiding instrument for international development co-operation aligns with the principles of the 2030 Agenda, emphasising poverty eradication, reducing inequalities, promoting sustainable, inclusive growth and leaving no one behind. Its first strategic objective, “Affirming the centrality of Portuguese co-operation”, highlights the importance of strengthening the relevance and visibility of co-operation within public policies. Specific Objective 1.1 further underlines the goal of integrating co-operation into public policies, ensuring coherence, and enhancing the impact and recognition of Portugal’s development initiatives at both national and international levels.
PDCS 2030 also responds to global development challenges and international co-operation dynamics in this context, with Portuguese development co-operation contributing to three key political commitments at the international level: 1) the 2030 Agenda; 2) the Addis Ababa Action Agenda; and 3) the Paris Agreement.
Lastly, sectoral priorities are organised according to the “5 Ps” of the 2030 Agenda and substantiate the contribution of each priority to the SDGs. Human development is the central thematic focus of the PDCS 2030, therefore guiding all actions to be carried out in the priority sectors.
Statistical infrastructure and innovative data collection methods facilitate SDG monitoring
Portugal’s statistical system, particularly through INE, plays a crucial role in collecting, managing and disseminating data relevant to the SDGs. This contributes to an enhanced understanding of economic, social and environmental externalities, both domestically and internationally. Portugal’s investment in statistical infrastructure and the adoption of innovative data collection methods, such as satellite accounts for the environment, are further strengths.
Robust data collection and management infrastructure underpin Portugal's approach to sustainable development reporting. The establishment of dedicated platforms and frameworks for sustainable development reporting – with the increase of SDG monitoring platforms – reflects a commitment to regular reporting.
In this regard, the ODSlocal Platform, highlighted in the VNR 2023, which involves several partners, including CNADS, OBSERVA, MARE, and 2adapt, aims to engage municipalities, local stakeholders and citizens with the SDGs. It makes it possible to visualise and monitor projects and progress related to the 2030 Agenda for each council. ODSlocal was created with private funding and under the patronage of the Portuguese president. The involvement of multiple stakeholders, including government agencies, academia and civil society, in developing and reviewing sustainability reports ensures a comprehensive and inclusive reporting process.
Dedicated platforms support reporting on sustainable development
Portugal’s approach to reporting on sustainable development is underpinned by its robust data collection and management infrastructure. The establishment of dedicated platforms and frameworks for sustainable development reporting, such as the SDG monitoring platform, reflects the country’s commitment to regular reporting. In this regard, the ODSlocal Platform aims to engage municipalities, local stakeholders and citizens with the SDGs (Box 3.8).
The SDGs Observatory aims to monitor and report on the implementation of the SDGs within Portuguese companies, integrating data and indicators across various sectors. This initiative aims to understand, monitor and enhance the adoption of the SDGs by Portuguese businesses, thereby boosting their capacity, efficiency and potential contribution to the 2030 Agenda.
The Observatory is a research project by the Católica Lisbon School of Business and Economics, launched in September 2021, with the support and funding of BPI and the "la Caixa" Foundation. It monitors a group of 61 large companies and over 100 small and medium-sized enterprises in Portugal. The project involves collaboration with national and international entities, including civil society organisations, academia and private-sector representatives. It serves as a platform for regular consultations and data collection, aiming to promote a clear understanding of corporate engagement with the SDGs, showcase best practices in SDG implementation, and foster a business community that is knowledgeable and proactive in contributing to Portugal's sustainable development agenda.
Source: Government of Portugal (2023[40]), 2023 Voluntary National Review Portugal, https://hlpf.un.org/sites/default/files/vnrs/2023/Portugal_VNR_Report.pdf.
Gaps
There is a need for comprehensive institutional frameworks that mandate and standardise RIA across sectors
Inconsistencies exist in the application of impact assessments across different sectors. While EIAs are regularly conducted for environmental policies, other types of assessments, such as social and gender impact assessments, may not be applied as systematically. This variability may result from a lack of comprehensive institutional frameworks that mandate and standardise these assessments across all government actions, potentially leading to uneven assessment of policy impacts on sustainable development.
A positive step in the right direction is the introduction of RIA 2, which includes an SIA module. This module evaluates social impacts in key areas such as gender, poverty, disability, and the risks of fraud, corruption, and related offences (PlanAPP, n.d.[48]). While RIA 2 represents an important advancement towards a more structured and inclusive impact assessment framework, it is still a relatively new initiative, and its full implementation and effectiveness in practice have yet to be tested. Ensuring its consistent application across policies will be crucial for achieving its intended benefits.
Furthermore, there is an opportunity to enhance the integration and co-ordination among various types of impact assessments. Assessments such as RIAs, EIAs and GIAs are often carried out independently, without a unified framework to account for their interdependencies. Addressing this gap through more integrated planning and assessment tools would support a holistic approach to evaluating policy impacts and strengthen institutional mechanisms for sustainable development.
Portugal could take steps to assess transboundary impacts more systematically
There are currently no dedicated mechanisms to assess the transboundary impacts of policies, particularly those with implications for developing countries. This is relevant to areas such as trade, environmental protection, and foreign aid and suggests an institutional gap in the systematic incorporation of global responsibilities into national policy assessments. Developing guidelines that explicitly mandate transboundary impact considerations could help address this need.
Additionally, there is an opportunity to integrate human rights considerations more systematically into both RIA and ex post evaluation. While human rights are referenced in specific policy areas, a consistent approach to embedding human rights into all impact assessments is not yet fully realised. This highlights a broader institutional opportunity to ensure that human rights are foundational across policy evaluations, potentially through a more integrated approach within existing legal and policy frameworks.
The 2023 VNR also notes that although RIAs are increasingly utilised, ex post evaluations – which are essential for assessing actual policy impacts and making adjustments – are not yet conducted on a systematic basis. Establishing institutional mechanisms that mandate and support regular ex post evaluations would strengthen the ability to verify that policies achieve their intended sustainable development outcomes and to make data-driven improvements based on these evaluations.
Capacities for data collection, monitoring and reporting on sustainable development can be strengthened and complemented by efforts focused on PCSD
Since 2018, INE has published annual statistical reports on the SDGs, providing a valuable overview of progress and highlighting areas that require further attention. These reports play a key role in assessing the impact of policies and financing on sustainable development, supporting informed decision-making. They also underscore the need for SDG indicators better tailored to Portugal's national context.
While collaboration with entities like INE for data and statistics is positive, a more integrated system would enhance monitoring. Currently, no comprehensive framework captures both domestic and international impacts, and SDG indicators often do not fully align with national needs. Additionally, there are capacity and skills gaps in data management and reporting, particularly in relation to PCSD. Existing evaluation systems lack a policy coherence dimension, which is critical for understanding sectoral linkages and potential trade-offs, suggesting the need for a more integrated evaluation approach.
Portugal could benefit from developing a more comprehensive monitoring and reporting framework that includes regular assessments of the domestic and transboundary impacts of policies and financing. This framework would enable transparent and consistent reporting on progress towards PCSD. Expanding the range and depth of data and indicators – disaggregated by factors such as sex, age, race, ethnicity and geographic location – would improve insights into how policies impact diverse groups, leading to more informed policymaking. Indicators on performance information could be useful. Tailoring SDG indicators to better reflect national challenges would also address current limitations in the use of global indicators, which may not fully capture Portugal's unique context.
Possible ways ahead
Develop harmonised guidelines for conducting and integrating various impact assessments, ensuring all relevant sustainability dimensions are considered. These guidelines could incorporate OECD recommendations for RIAs, which emphasise the importance of assessing the direct and indirect impacts of regulations on economic, social and environmental factors. Portugal’s current RIA exercise does not account for indirect effects or the adaptive behaviours of economic agents not directly targeted by the regulation, which would be essential for a complete assessment of costs and benefits (PlanAPP, 2024[49]).
The need for an explicit framework to integrate various impact assessment tools currently being applied across the government was also stressed by participants in the 20 May workshop. They suggested that a committee comprised of relevant institutions (e.g. the Budget Office of the General Inspectorate of Finance, the Tribunal of Accounts and INE) and chaired by PLANAPP could be tasked to prepare such a framework and advise on its application to ensure objectivity and neutrality in conducting RIA and ex-post evaluations, including with regard to the impact of spending decisions on sustainable development.
Enhance the capabilities of institutions like PLANAPP to support government bodies in applying integrated impact assessments and monitoring the long-term effects of policies. Training could include not only technical aspects and methodologies for conducting effective RIAs but also the broader strategic importance of RIAs in achieving the SDGs.
Mandate the systematic consideration of economic, social, gender and environmental impacts on developing countries and human rights implications for all relevant policies. The 20 May workshop proposed that PLANAPP, in collaboration with other government institutions such as Camões I.P., develop a pilot project with a small country (e.g. Cabo Verde and/or Guinea Bissau) to assess the transboundary impacts of domestic policies. This would also entail ensuring that the partner country has the functional and institutional capacity to engage effectively with in the pilot project.
Strengthen both RIA and ex post evaluation practices to ensure that policies are planned with foresight and reviewed retrospectively to gauge their effectiveness and impact. This will help to continuously improve policy-making processes and adapt to new information or changing circumstances.
Improve data infrastructure to enhance the quality and accessibility of data related to PCSD and develop and implement a more comprehensive monitoring and reporting framework that includes regular assessments of the domestic and transboundary impacts of policies and financing.
Ensure regular reporting on global SDG indicator 17.14.1 and address the gaps identified in the 2022 self-assessment of this indicator.
Consider tailoring the global SDG indicators to the national level and ensure that these indicators reflect regional and local differences.
Modify evaluation systems to explicitly include a policy coherence dimension to assess the interlinkages and potential trade-offs between sectoral policies, as well as their domestic and international impacts, to inform more coherent decision-making.
The Sustainability Check (Nothaltegkeetscheck) is a tool for supporting and self-assessing draft legislation in light of its impact on sustainable development in Luxembourg. It enables ministries and administrations to take greater ownership of general sustainable development policy and, in particular, of Luxembourg's National Plan for Sustainable Development (PNDD). Its introduction into the legislative procedure was carried out as part of the implementation of the 2018-2023 government programme and constitutes an implementation of the PNDD adopted by the government in December 2019.
The Government of Luxembourg has decided to integrate the Sustainability Check into the legislative procedure and add it to existing annexes to draft legislation, with the aim of rethinking the way legislation is made and clarifying trade-offs in increasingly complex contexts. Introducing it at an early stage in drafting legislation not only advances the cross-cutting theme of sustainable development but also ensures greater policy coherence and better quality of legislation, considering the long-term challenges facing society, such as climate change and an ageing population.
To facilitate this exercise, the Sustainability Report is accompanied by guidance points and documentation on the ten action areas, enabling the bill's author to familiarise themselves with the policy issues addressed. In addition, a website (www.nohalteg.lu) has been set up on which all bills relating to sustainable development can be consulted.
Since the official introduction of the Nothaltegkeetscheck, all bills have indeed been accompanied by a completed control form. Participants have also evaluated the training sessions positively, stressing that they have acquired a better understanding of sustainable development, what it means in the context of their field(s) of work, and the impact that the policies implemented by their ministry or administration can have on other policies.
Source: ESDN (2024[50]), Luxembourg's Sustainability Check, https://www.esdn.eu/newsflash/detail/luxembourgs-sustainability-check; Government of Luxembourg (n.d.[51]), Contrôle de la durabilité ou Nohaltegkeetscheck – documentation, https://nohalteg.public.lu/dam-assets/ctie/assets/nohaltegkeets-check/nohaltegkeetscheck-documentation.pdf.
RIA has been mandatory for all primary laws and subordinate regulations in Austria since 2013. The information on performance monitoring in Austria is available in digital form on an interactive website maintained by the Federal Chancellery. The Federal Performance Management Office has developed an impact assessment monitoring tool to graphically display the evaluation results from the annual reports for individual departments and subdivisions at a glance. This interactive tool provides an overview of the linkages between all budgetary bodies and their corresponding chapters, outcome objectives, outputs and specific projects. Despite recommending further improvements to user-friendliness and easy accessibility, this website is a good example of the innovative presentation of performance data.
Source: OECD (2020[52]), Regulatory Impact Assessment and Regulatory Oversight in Austria, https://oeffentlicherdienst.gv.at/wp-content/uploads/2023/12/556756-RIA-in-Austria-web.pdf.
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← 1. See the Law of Great Options, Table 2, at https://bit.ly/44qptum.
← 2. See https://www.garantiainfancia.gov.pt/documents/37502/0/Resolu%C3%A7%C3%A3o+n%C2%BA3+2023/f842a69f-3f90-471a-b6d2-57b7d34c7c0c.
← 3. Under the mandate of Camões I.P., the PALOP and Timor-Leste-EU co-operation is intended to strengthen the relationship between the Portuguese-speaking African countries and East Timor and the EU Member States. It has been active since 1992, having been extended to East Timor in 2007 (Camões I.P., 2016[64]).
← 7. See 2.5. State Budget and the Sustainable Development Goals Sustainable Development; pages 76-79, https://www.dgo.gov.pt/politicaorcamental/OrcamentodeEstado/2025/Proposta%20Orcamento/Documentos%20do%20OE/OE2025_doc16_Relatorio.pdf.
← 8. The NRP was a national strategy and planning instrument that was part of the political process of economic and social governance of the European Union. It was drafted and presented annually by the government of each country, following the European Semester institutional calendar, which was created and designed to guarantee the co-ordination of different Member States’ public policies with the guidelines and policies pursued in the European framework. It was replaced by POENMP (PlanAPP, 2024[65]).