COMMISSION STAFF WORKING DOCUMENT The EU Environmental Implementation Review Country Report - PORTUGAL Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions The EU Environmental Implementation Review: Common Challenges and how to combine efforts to deliver better results
Date: 2017-02-03
Institutions: Directorate-General for Environment, European Commission
Subjects: EU environmental policy, EU initiative, Portugal, application of EU law, environmental law, environmental protection, pollution control measures

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 3.2.2017  SWD(2017) 54 final   COMMISSION STAFF WORKING DOCUMENT The EU Environmental Implementation Review Country Report - PORTUGAL   Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions The EU Environmental Implementation Review: Common Challenges and how to combine efforts to deliver better results   {COM(2017) 63 final} {SWD(2017) 33 - 53 final} {SWD(2017) 55 - 60 final}  
 
 
Portugal  2 

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Commission. Any comments are welcome to the following e-mail address: ENV-EIR@ec.europa.eu  

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Portugal  3 

Table of Content 

EXECUTIVE SUMMARY .................................................................................................................................... 4 

PART I: THEMATIC AREAS ............................................................................................................................... 6 

1. 

TURNING  THE  EU  INTO  A  CIRCULAR,  RESOURCE-EFFICIENT,  GREEN  AND  COMPETITIVE  LOW-
CARBON ECONOMY ............................................................................................................................... 6 

Developing a circular economy and improving resource efficiency ..................................................... 6 
Waste management .............................................................................................................................. 8 

2. 

PROTECTING, CONSERVING AND ENHANCING NATURAL CAPITAL ..................................................... 11 

Nature and Biodiversity ....................................................................................................................... 11 
Green Infrastructure ........................................................................................................................... 13 
Soil protection ..................................................................................................................................... 14 
Marine protection ............................................................................................................................... 15 

3. 

ENSURING CITIZENS' HEALTH AND QUALITY OF LIFE .......................................................................... 17 

Air quality ............................................................................................................................................ 17 
 ................................................................................................................................................. 18 
Noise 
Water quality and management ......................................................................................................... 18 
Enhancing the sustainability of cities .................................................................................................. 21 
International agreements ................................................................................................................... 22 

PART II: ENABLING FRAMEWORK: IMPLEMENTATION TOOLS ..................................................................... 23 

4.  MARKET BASED INSTRUMENTS AND INVESTMENT ............................................................................ 23 

Green taxation and environmentally harmful subsidies ..................................................................... 23 
Green Public Procurement .................................................................................................................. 24 
Investments: the contribution of EU funds ......................................................................................... 25 

5. 

EFFECTIVE GOVERNANCE AND KNOWLEDGE ...................................................................................... 28 

Effective governance within central, regional and local government ................................................. 28 
Compliance assurance ......................................................................................................................... 29 
Public participation and access to justice ........................................................................................... 31 
Access to information, knowledge and evidence ................................................................................ 32 

Environmental Implementation Report – Portugal 

 
 
 
Executive summary 

About the Environmental Implementation Review 

General profile 

Portugal  4 

During  the  last  decades,  the  implementation  of  the  EU 
environmental 
law  and  policy  has  contributed  to 
preserve  and  to  improve  the  environment  in  Portugal, 
thanks also to the significant assistance from EU funding. 
Nevertheless, Portugal still faces considerable challenges 
in the areas of water and waste management, air quality 
and  nature  conservation.  Furthermore,  environmental 
implementation  and  enforcement  represent  overall  a 
challenge for Portugal. 

Main Challenges 

three  main 

to 
The 
implementation  of  EU  environmental  policy  and  law  in 
Portugal are: 

challenges  with 

regard 

 

Improving  waste  management  and  developing  the 
potential of the circular economy. 

  Enhancing  the  effective  protection  of  the  Natura 

2000 network. 

  Following  up  on  the  implementation  of  marine 
strategies  to  meet  a  good  environmental  status  of 
marine waters. 

Main Opportunities 

Portugal  could  perform  better  on  topics  where  there  is 
already a good knowledge base and good practices. This 
applies in particular to: 

 

  Using  the  experience  already  gained  over  the  past 
few years to improve compliance with the Air Quality 
Directive, in particular for NO2. 
Improving  efficiency,  effectiveness  and coordination 
in  the  public  environmental  sector  implementing 
recent  initiatives  such  as  the  Single  Environment 
Permit  (SEP)  scheme,  the  Unique  Platform  for 
the  areas  of 
Inspection  and  Monitoring 
agriculture,  sea  and  environment  and  the  National 
Network for the Implementation and Enforcement of 
Environmental Law (IMPEL). 

in 

  Taking  advantage  of  the  opportunities  for  greening 
the  first  pillar  of  the  Common  Agricultural  Policy 
(CAP)  and  making 
rural 
development measures under the second pillar. 

further  use  of 

the 

launched 

reports  describing 

the 
the  Commission 
In  May  2016, 
Environmental  Implementation  Review  (EIR),  a  two-year 
cycle  of  analysis,  dialogue  and  collaboration  to  improve 
the  implementation  of  existing  EU  environmental  policy 
and  legislation1.  As  a  first  step,  the  Commission  drafted 
28 
the  main  challenges  and 
opportunities on environmental implementation for each 
Member  State.  These  reports  are  meant  to  stimulate  a 
positive debate both on shared environmental challenges 
for  the  EU,  as  well  as  on  the  most  effective  ways  to 
address the key implementation gaps. The reports rely on 
the detailed sectoral implementation reports collected or 
issued  by  the  Commission  under  specific  environmental 
legislation  as  well  as  the  2015  State  of  the  Environment 
Report  and  other  reports  by  the  European  Environment 
Agency.  These  reports  will  not  replace  the  specific 
instruments  to  ensure  compliance  with  the  EU  legal 
obligations. 

The  reports  will  broadly  follow  the  outline  of  the  7th 
Environmental Action Programme2 and refer to the 2030 
related 
for  Sustainable  development  and 
Agenda 
Sustainable Development  Goals  (SDGs)3  to  the  extent  to 
which  they  reflect  the  existing  obligations  and  policy 
objectives of EU environmental law4. 

The  main  challenges  have  been  selected  by  taking  into 
account factors such as the importance or the gravity of 
the  environmental  implementation  issue  in  the  light  of 
the  impact  on  the  quality  of  life  of  the  citizens,  the 
distance to target, and financial implications. 

The  reports  accompany  the  Communication  "The  EU 
Environmental  Implementation  Review  2016:  Common 
challenges  and  how  to  combine  efforts  to  deliver  better 
results", which identifies challenges that are common to 
several Member States, provides preliminary conclusions 
on  possible  root  causes  of  implementation  gaps  and 
proposes  joint  actions  to  deliver  better  results.  It  also 
groups in its Annex the actions proposed in each country 
report to improve implementation at national level. 

1 Communication "Delivering the benefits of EU environmental policies 
through a regular Environmental Implementation Review" 
(COM/2016/ 316 final) 
2 Decision No. 1386/2013/EU of 20 November 2013 on a General Union 
Environmental Action Programme to 2020 "Living well, within the 
limits of our planet". 
3 United Nations, 2015. The Sustainable Development Goals  
4 This EIR report does not cover climate change, chemicals and energy. 

Environmental Implementation Report – Portugal 

 
 
 
 
                                                            
 
 
 
Portugal  5 

Points of Excellence 

Where  Portugal leads  in  environmental  implementation, 
it  could  share  its  innovative  approaches  more  widely 
among other countries. Good examples are: 

  The  creation  of  a  "Commission  for  Green  Tax 
Reform"  in  2014  and  the  subsequent  reform  of  the 
Portuguese  tax  system  in  2015  in  order  to  foster 
environmental taxation. 

  The  national  strategy  "Commitment  for  Green 
Growth"  adopted  by  the  Portuguese  government  in 
2015. 

  The  improvements  in  the  quality  of  the  drinking 
water  supply  systems  experienced  over  the  last 
decade. 

Environmental Implementation Report – Portugal 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Portugal  6 

Part I: Thematic Areas 

1. Turning the EU into a circular, resource-efficient, green and 

competitive low-carbon economy 

Developing  a  circular  economy  and  improving 
resource efficiency 

The 2015 Circular Economy Package emphasizes the need 
to  move  towards  a  lifecycle-driven  ‘circular’  economy, 
with a cascading use of resources and residual waste that 
is  close  to  zero.  This  can  be  facilitated  by  the 
development  of,  and  access  to,  innovative  financial 
instruments and funding for eco-innovation. 

SDG  8  invites  countries  to  promote  sustained,  inclusive 
and  sustainable  economic  growth,  full  and  productive 
employment  and  decent  work  for  all.  SDG  9  highlights 
the  need  to  build  resilient 
infrastructure,  promote 
inclusive  and  sustainable  industrialization  and  foster 
innovation.  SDG 12  encourages countries  to  achieve  the 
sustainable  management  and  efficient  use  of  natural 
resources by 2030. 

Measures towards a circular economy 

Transforming our economies from linear to circular offers 
an  opportunity  to  reinvent  them  and  make  them  more 
sustainable  and  competitive.  This  will 
stimulate 
investments and bring both short and long-term benefits 
for the economy, environment and citizens alike5. 

A  number  of  studies  have  shown  at  European  level  the 
positive  link  between  environmental  performance  and 
job creation6. 

Pressure  on  material  resources  is  one  of  the  long-term 
trends affecting job creation and growth in the EU. 

In  terms  of  resource  productivity  (how  efficiently  the 
economy  uses  material  resources  to  produce  wealth), 
Portugal  has  the  17th  place  in  the  EU  (according  to  the 
resource  productivity  indicator)  with  1.10  EUR/kg  (EU 
average is 2.0 EUR/kg) in 20157. 

Figure  1  shows  that  while  the  resource  productivity  has 
increased  overall  since  2007,  it  is  slightly  decreasing  in 
2015  compared  to  2014.  Therefore,  there  is  clear  room 
for improvement in this field. 

Figure 1: Resource productivity 2003-158 

From  2013  to  2015  several  national  plans  were  revised 
(waste, water), placing strong emphasis on efficiency and 
meeting  EU  targets  in  the  most  cost-effective  way,  and 
new  types  of  policies  were  introduced  (e.g.  Green 
Taxation  Reform).  It  can  be  specially  highlighted  the 
Green Growth Commitment, a national strategy adopted 
with  the  purpose  of  reorienting  the  country's  economic 
development  which  is  now  focusing  on  the  circular 
economy.  These  initiatives  will  be  developed  in  next 
sections of this EIR country report. 

SMEs and resource efficiency 

Portuguese  SMEs  account  for  more  than  two  thirds  of 
total value added (compared with an average of 57 % in 
the EU) and nearly four out of five jobs (against two out 
of  three  jobs  in  the  EU  on  average).  Despite  a  more 
positive outlook since 2013, the recession period of 2008 
continues to have an impact9. 

The  performance  of  Portuguese  SMEs  is  above  EU 
average on several indicators on resource efficiency and 
green markets. 58% of Portugal's SMEs have invested up 
to 5% of their annual turnover in their resource efficiency 
actions (EU28 average 50%), 26 % of them are currently 
offering green products and services, 74% took measures 
to  save  energy  (EU28  average  59%),  62%  to  minimise 
waste  (EU28  average  60%),  66%  to  save  water  (EU28 
average 44%), and 74% to save materials (EU28 average 
54%).  From  a  circular  economy  perspective,  63%  took 

5 European Commission, 2015. Proposed Circular Economy Package  
6 http://ec.europa.eu/environment/enveco/studies.htm 
7 Resource productivity is defined as the ratio between gross domestic 
product (GDP) and domestic material consumption (DMC). 

8 Eurostat, Resource productivity, accessed October 2016. 
9 European Commission, SMEs country sheets 2016 

Environmental Implementation Report  – Portugal 

 
 
 
                                                            
 
                                                            
Portugal  7 

the Efinerg15 project, aimed at energy efficiency practices 
and  technologies  in  industry;  Ecoprodutin16,  aimed  at 
Interambinerg17, 
material  and  water  efficiency;  and 
aiming  to  support  the 
internationalisation  of  the 
Portuguese  sector  for  environmental  and  energy  goods 
and services. 

Eco-innovation 

In  a  2013  eco-innovation  scoreboard,  Portugal  ranked 
below  the  EU-28  average  (14th  place)  with  an  overall 
score of 79 (EU-28 average is 100) as shown in Figure 2.18 
The  following  two  years  saw  Portugal  strengthening  its 
position  in  the  compound  EIO  score  in  comparison  to 
previous years, improving to 101.6 and the 12th place in 
the  EU  ranking.  These  results  are  supported  by  other 
Innovation 
indicators  and 
Scoreboard 
shows  an 
improvement  from  0.396  in  2013  to  0.4  in  2014  and 
0.403 in 2015. 

the 
such  as 
index,  which 

reports, 
(EC,  2015) 

Figure 2: Eco-Innovation Index 2015 (EU=100)19 

measures to recycle by reusing material or waste within 
the  company, 51% to  design  products  that  are easier to 
maintain, repair or reuse and 30% were able to sell their 
scrap material to another company10. 

The EU Roadmap on Resource Efficiency outlines how we 
can  transform  Europe's  economy  into  a  sustainable  one 
by 205011. 

Investments in innovative, cost-saving measures by SMEs 
to reduce resource- and energy use have the potential to 
result in high cost savings. Thus, according to a study, for 
only four SME sectors (food & beverages; energy, power 
& utilities; environmental technologies; construction) the 
savings  that  would  strengthen  their  competitiveness 
could already amount to EUR 882 million in Portugal12. 

Another  recent  study  offers  a  detailed  analysis  of  the 
level  of  application  of  business  support  measures  to 
improve  resource  efficiency  applied  in  the  EU  Member 
States13. This study shows that Portugal has implemented 
a few resource efficiency measures for businesses. In this 
sense,  it  appears  that  measures  supporting  Industrial 
Symbiosis  have  been  more  successful  as  there  is  an 
electronic 
the 
interaction  between  supply  and  demand  of  waste. 
Further  measures  identified,  reflect  the  concentrated 
efforts  in  supporting  voluntary  agreements,  providing 
targeted  resource  efficiency  information  and  building 
resource efficiency skills within business. 

negotiation 

promoting 

platform 

Initiatives such as the Ecopol project are fundamental to 
kick  start  the  necessary  network  and  interaction  among 
different  stakeholders  to  identify  the  eco-innovation 
champions,  initiatives,  products  and  services,  and  to 
demonstrate  the  benefits  for  business  and  the  society. 
This  2014  project  brought  together  public  institutions 
and the private sector in the sustainable habitat cluster, 
to  propose  policy  instruments  and  tools  specifically 
aimed  at  improving  the  use  of  sustainable  construction 
materials by public institutions and the community. 

At the industry level, several initiatives were launched in 
2015  specifically  targeting  resource  efficiency  through 
eco-innovation in industry, serving as “living labs” to pilot 
technologies,  sharing  of  best  practices  and  providing  a 
platform to raise awareness on circular economy and the 
future  of  the 
initiatives  were 
industry.  Three  such 
streamlined by the Portuguese Companies Association14: 

10 European Commission, 2015. Flash 426 Eurobarometer "SMEs, 
resource efficiency and green markets 
11 Communication COM(2011) 571. The Resource Efficiency Roadmap is 
part of the Resource Efficiency Flagship of the Europe 2020 Strategy. 
12 RPA, 2015. Assessing the Potential Cost Savings and Resource Savings 
of Investments in 4 SME sectors, study for the European Commission. 
13 Ecologic Institute, IEEP, BIO by Deloitte, 2015. A framework for 
Member States to support business in improving its resource 
efficiency. Study for the European Commission. 
14 AEP: Associação Empresarial de Portugal. 

15 Efinerg project  http://efinerg.aeportugal.pt/Projeto.aspx 
16 Ecoprodutin project 
http://ecoprodutin.aeportugal.pt/Projeto.aspx  
17 Interambinerg project 
http://interambinerg.aeportugal.pt/Projeto.aspx  
18 Eco-Innovation Observatory, Country Brief 2013 Portugal,  
19 Eco-innovation Observatory: Eco-Innovation scoreboard 2015 

Environmental Implementation Report – Portugal 

 
                                                            
 
                                                            
Portugal  8 

The  progress  towards  reaching  recycling  targets and  the 
adoption  of  adequate  WMP/WPP20  are  key  tools  to 
assess  the  performance  of  Member  States.  This  section 
focuses on management of municipal waste for which EU 
law sets mandatory recycling targets. 
The  generation  of  municipal  waste21  in  Portugal  has 
decreased  in  the  recent years  to  453  kg/year/inhabitant 
and is below the EU average (475 kg/year/inhabitant) as 
shown in Figure 3. 

Figure  3  depicts  the  municipal  waste  by  treatment  in 
Portugal  in  terms  of  kg  per  capita,  which  shows  a  slight 
increase  in  recycling  and  composting  and  a  small  shift 
away from incineration and landfilling. Incineration (with 
energy  recovery)  represents  21%;  while 
landfilling 
represents  49%  (much  higher  than  the  EU  average  of 
28%). In this context, managing waste efficiently remains 
a challenge in Portugal. 

Figure  3:  Municipal  waste  by  treatment  in  Portugal 
2007-1422 

Portugal has a number of clusters in which strategies are 
being  developed  and  that  are  very  committed  to  eco-
innovation  as  a  differentiation  factor:  “HABITAT”:  the 
Portuguese Sustainable Habitat Cluster, “Energy IN”: the 
Portuguese  Energy  Cluster  and  “PRODUTECH”:  the 
Portuguese Production Technologies Cluster. 

To 

the 

this, 

remediate 

Nevertheless,  resource  efficiency  targets  and  innovation 
policies  in  Portugal  have  not  been  well  connected, 
missing  a  cross-cutting  integration  and  incentives  for 
synergies. 
Portuguese 
Government adopted in June 2016 the "Commitment to 
Knowledge  and  Science:  Commitment  with  the  Future". 
This is a new Agenda for the period 2016-2020, calling for 
coherence  and  coordination  between  different  policy 
areas, promoting a new policy framework for the role of 
knowledge in the development of the country, based on 
different  strategic  dimensions,  namely  in  the  promotion 
of  thematic  research  and  innovation  agendas  and  of 
territorial  dimension  stimulating  the  development  of 
cities/regions. 

As  of  May  2016,  Portugal  has  56  EMAS  registered 
organisations,  which  is  a  low  compared  to  the  total  of 
4034 organisations that hold a registration in the EU. The 
number of EU Ecolabel licenses in Portugal is also low. 

Suggested actions 

  Implement a better monitoring of the circular economy 
policy  tools  in  order  to  assess  their  effectiveness  and 
be able to revise them. 

Waste management 

Turning waste into a resource requires: 
 

implementation  of  Union  waste 

Full 
legislation, 
which  includes  the  waste  hierarchy;  the  need  to 
ensure  separate  collection  of  waste;  the  landfill 
diversion targets etc. 

  Reducing  per  capita  waste  generation  and  waste 

 

generation in absolute terms. 
Limiting energy recovery to non-recyclable materials 
and  phasing  out 
recyclable  or 
recoverable waste. 

landfilling  of 

SDG  12  invites  countries  to  substantially  reduce  waste 
generation  through  prevention,  reduction,  recycling  and 
reuse by 2030. 

The EU's approach to waste management is based on the 
"waste  hierarchy"  which  sets  out  an  order  of  priority 
when  shaping  waste  policy  and  managing  waste  at  the 
operational 
level:  prevention,  (preparing  for)  reuse, 
recycling,  recovery  and,  as  the  least  preferred  option, 
incineration 
includes 
disposal  (which 
without energy recovery). 

landfilling  and 

Portugal  achieved  the  2006  target  for  diversion  of 
biodegradable  waste  from  landfill  (75%).  However,  the 
biodegradable  municipal  waste  landfilled  has  increased 
since  then.  Portugal  has  benefited  from  a  four  year 
derogation  targets  for  2009  (50%)  and  2016  (35%), 
deferring  these  to  2013  and  2020  respectively.  Portugal 
reported  meeting  the  deferred  50%  landfill  target  in 
2015. 

20 Waste Management Plans/Waste Prevention Programmes 
21 Municipal waste consists of waste collected by or on behalf of 
municipal authorities, or directly by the private sector (business or 
private non-profit institutions) not on behalf of municipalities. 
22 Eurostat, Municipal waste and treatment, by type of treatment 
method, accessed October 2016 

Environmental Implementation Report – Portugal 

 
 
 
                                                            
Portugal  9 

 

 

 

 

Lack of incentives to manage waste according to the 
waste hierarchy; 
Lack  of  co-ordination  between 
administrative levels; 
Insufficient  (door-to-door)  separate  collection  of 
waste; 
Insufficient  extended  producer  responsibility  (EPR) 
systems. 

the  different 

In  order  to  face  these  gaps,  Portugal  has  been  actively 
developing the following initiatives: 

  has  recently  reviewed  its  landfill  tax  establishing  a 

 

 

gradual increase untill 2020; 
is  channelling  EU  funds  from  operational  programs 
to  coordinate  efforts  between  agents  in  the  waste 
management  chain.  Projects  are  positively  valued  if 
they integrate measures and organisations aiming at 
the compliance of targets.  
is  enhancing  all  efforts  aiming  at  the  separate 
collection  of  waste.  Also  operational  programs  are 
financing  dedicated  projects  on  door  to  door  and 
PAYT collection. 

  has  12  EPR  systems  and  as  of  September  2016  will 
soon  licence  one  more  on  packaging  waste.  All 
in  ELV, 
is  covered  by  these  schemes 
country 
packaging waste, WEEE, batteries and accumulators, 
mineral oils and tyres. Portugal is complying with the 
targets  established  for  these  waste  streams.  A  new 
set of EPR licences are now being established already 
having in mind new challenges arising as well as the 
increase  of  transparency  in  the  management  of 
these schemes. 

Still,  there  is  clear  scope  to  develop  specific  policy 
instruments that support the transition to a more circular 
economic  model,  which  would  improve  resilience  and 
competitiveness  of  the  Portuguese  economy,  based  in 
resource efficiency and productivity. 

Figure 4: Recycling rate of municipal waste 2007-1423 

Portugal  has  made  progress  in  terms  of  increases  of 
recycling  rate  and  diversion  of  municipal  waste  from 
landfilling in the course of the past decade. However, the 
recycling rate for municipal waste in 2014 was at 30% (of 
which  16%  recycling  and  14%  composting),  markedly 
below  the  EU  average  of  44%.  Figure  4  shows  that 
Portugal  must  further  invest  in  recycling  in  the  coming 
years in order to reach the EU 2020 recycling target24. 

Portugal  approved 
the  National  Waste 
in  2014 
Management  Plan  2014-202025,  as  well  as  the  Strategic 
Plan  for  Municipal  Solid  Waste  for  the  mainland  (PERSU 
2020)26    The  main  objective  of  the  PERSU 2020  is  to  set 
the roadmap to meet the 2020 EU targets for municipal 
waste,  namely  the  50%  objective  for  preparation  for 
reuse  and  recycling.  To  help  meet  the  targets,  PERSU 
2020 proposes a large set of measures aligned with eight 
strategic objectives. 

At  present,  the  opportunities  for  waste  prevention  and 
recycling  are  not  yet  fully  developed  in  Portugal,  and  a 
still  high  proportion  of 
landfilled 
municipal  waste  is  preventing  transition  to  a  circular 
economy. In order to help bridge the implementation gap 
in  Portugal,  the  Commission  has  delivered  a  roadmap 
with recommendations for compliance27. 

incinerated  and 

The  underlying  causes  for  the  current  distance  to  EU 
waste targets are:  

23 Eurostat, Recycling rate of municipal waste, accessed October 2016 
24 Member States may choose a different method than the one used by 
ESTAT (and referred to in this report) to calculate their recycling rates 
and track compliance with the 2020 target of 50% recycling of 
municipal waste. 
25 Plano Nacional de Gestao de Residuos para o horizonte 2014-2020. 
Diário da República 16.03.2015. 
26 Plano Estratégico para os Residuos Urbanos (PERSU 2020) para o 
Portugal continental. Diário da República 17.09.2014. 
27 European Commission, 2016. Support to Implementation – The 
Commission helps 8 Member States to improve their municipal waste 
management. Fact sheet for Portugal. 

Environmental Implementation Report – Portugal 

 
 
                                                            
 
Portugal  10 

As a consequence of the green taxation reform, a tax on 
plastic bags has been approved in Portugal, in force from 
January 2015. 

The  implementation  of  the  measures  foreseen  in  the 
PERSU 2020 is crucial to improve the current situation on 
waste management. 

Full implementation of EU waste legislation could create 
more  than  14,900  jobs  in  Portugal  and  increase  annual 
turnover  of  the  waste  sector  by  over  EUR  1,560  million. 
Moving towards the targets of the Roadmap on resource 
efficiency  could  create  over  18,200  additional  jobs  and 
increase the annual turnover of the waste sector by over 
EUR 1,910 million28. 

Suggested action 

reuse  and 

  Provide  the  right  economic  incentives  to  implement 
further  the  waste  hierarchy:  i.e.  promote  prevention, 
make 
recycling  more  economically 
attractive,  and  shift  reusable  and  recyclable  waste 
away  from  incineration  (e.g.  increasing  landfill  and 
incineration  charges,  consider 
introduction  of  a 
residual waste tax). 

  Focus  on  implementation  of  the  separate  collection 
obligation to increase recycling rates (e.g. expand door-
to-door collection systems, through PAYT systems). 

  Undertake  a  review  of 

infrastructure 
requirements, taking into account the changes in waste 
collection. 

treatment 

  Extend and improve the cost-effectiveness, monitoring 
and  transparency  of  existing  EPR  schemes,  eliminate 
free-riding  and  promote  competition 
in  order  to 
increase  efficiency  of  national  waste  management 
systems. 

28 Bio Intelligence service, 2011. Implementing EU Waste legislation for 
Green Growth, study for European Commission. The breakdown per 
country on job creation was made by the consultant on Commission 
demand but was not included in the published document. 

Environmental Implementation Report – Portugal 

 
 
 
 
 
                                                            
2. Protecting, conserving and enhancing natural capital 

Nature and Biodiversity  

the network30, as shown in Figure 531. 

Portugal  11 

The  EU  Biodiversity  Strategy  aims  to  halt  the  loss  of 
biodiversity  in  the  EU  by  2020,  restore  ecosystems  and 
their services in so far as feasible, and step up efforts to 
avert  global  biodiversity  loss.  The  EU  Birds  and  Habitats 
Directives  aim  at  achieving  favourable  conservation 
status of protected species and habitats.  

SDG  14  requires  countries  to  conserve  and  sustainably 
use the oceans, seas and marine resources, while SDG 15 
requires  countries  to  protect,  restore  and  promote  the 
sustainable  use  of  terrestrial  ecosystems,  sustainably 
manage  forests,  combat  desertification,  and  halt  and 
reverse land degradation and halt biodiversity loss. 

The  1992  EU  Habitats  Directive  and  the  1979  Birds 
Directive are the cornerstone of the European legislation 
aimed  at  the  conservation  of  the  EU's  wildlife.  Natura 
2000, the largest coordinated network of protected areas 
in  the  world,  is  the  key  instrument  to  achieve  and 
implement the Directives' objectives to ensure the  long-
term  protection,  conservation  and  survival  of  Europe's 
most  valuable  and  threatened  species  and  habitats  and 
the ecosystems they underpin. 

The  adequate  designation  of  protected  sites  as  Special 
Ares  of  Conservation  (SAC)  under  the  Habitats  Directive 
and  as  Special  Protection  Areas  (SPA)  under  the  Birds 
Directive 
is  a  key  milestone  towards  meeting  the 
objectives  of  the  Directives.  The  results  of  Habitats 
Directive Article 17 and Birds Directive Article 12 reports 
and  the  progress  towards  adequate  Sites  of  Community 
Importance (SCI)-SPA and SAC designation29 both in land 
and  at  sea,  should  be  the  key  items  to  measure  the 
performance of Member States. 

Portugal hosts 99 habitat types and 325 species covered 
by  the  Habitats  Directive.  The  country  also  hosts 
populations of 80 bird species listed in the Birds Directive 
Annex I. 

By early 2016, 20.6% of the national land area of Portugal 
was  covered  by  Natura  2000  (EU  average  18.1%),  with 
Birds  Directive  SPAs  covering  10%  (EU  average  12.3%) 
and  Habitats  Directive  SCIs  covering  17  %  (EU  average 
13.8%).  The  latest  assessment  of  the  SCI  part  of  the 
Natura 2000 network shows that there are insufficiencies 
in  designation,  especially  for  the  marine  components  of 

29 Sites of Community Importance (SCIs) are designated pursuant to the 
Habitats Directive whereas Special Areas of Protection (SPAs) are 
designated pursuant to the Birds Directive; figures of coverage do not 
add up due to the fact that some SCIs and SPAs overlap. Special Areas 
of Conservation (SACs) means a SCI designated by the Member States. 

Figure  5:  Sufficiency  assessment  of  SCI  networks  in 
Portugal  based  on  the  situation  until  December  2013 
(%)32  

The  6-year  deadline  set  by  the  Habitats  Directive  to 
designate  SAC  and  establish  appropriate  conservation 
objectives  and  measures  has  expired.  Portugal  has 
already  designated  the  Macaronesian  Biogeographical 
region SCIs as SACs. Nevertheless, no SACs have yet been 
designated for the SCIs of the Atlantic and Mediterranean 
Biogeographical regions, and it has defined management 
plans only for 3 SCIs. 

According  to  the  latest  report  on  the  conservation 
status33  of  habitats  and  species  covered  by  the  Habitats 
Directive34,  29%  of 
the  habitats  biogeographic 

30 For each Member State, the Commission assesses whether the 
species and habitat types on Annexes I and II of the Habitats Directive, 
are sufficiently represented by the sites designated to date. This is 
expressed as a percentage of species and habitats for which further 
areas need to be designated in order to complete the network in that 
country. The current data, which were assessed in 2014-2015, reflect 
the situation up until December 2013. 
31 The percentages in Figure 5 refer to percentages of the total number 
of assessments (one assessment covering 1 species or 1 habitat in a 
given biographical region with the Member State); if a habitat type or a 
species occurs in more than 1 Biogeographic region within a given 
Member State, there will be as many individual assessments as there 
are Biogeographic regions with an occurrence of that species or 
habitat in this Member State. 
32 European Commission, internal assessment. 
33 Conservation status is assessed using a standard methodology as 
being either ‘favourable’, ‘unfavourable-inadequate’ and 
‘unfavourable-bad’, based on four parameters as defined in Article 1 of 
the Habitats Directive.  
34 The core of the ‘Article 17’ report is the assessment of conservation 
status of the habitats and species targeted by the Habitats Directive. 

Environmental Implementation Report – Portugal 

 
 
  
 
                                                            
 
                                                            
assessments  were  favourable  in  2013  (EU  27:  16%). 
Furthermore,  58%  are  considered  to  be  unfavourable–
inadequate (EU27: 47%) and 8% are unfavourable  – bad 
(EU27: 30%). 

During  the  last  years,  CAP  and  particularly  the  Rural 
Development  pillar  has  been  the  most 
important 
financial  instrument  available  for  managing  nature  and 
biodiversity farmland and forest areas. 

Figure 6: Conservation status of habitats and species in 
Portugal in 2007/2013 (%)35 

Figure  7:  Short-term  population  trend  of  breeding  and 
wintering bird species in Portugal in 2012 (%)37 

Portugal  12 

At  the  same  time,  consistent  policies  were  adopted  to 
promote  sustainable  forest  management  to  face  small 
scale  land  property  and  the  abandonment  of  rural 
communities, namely in Northern and Central Portugal. It 
has also aimed at providing a better response to the need 
for  ongoing  and  active  forest  (and  environmental) 
management,  which  is  also  essential  for  preventing  the 
high  pressure  posed  by  forest  fires  risk  and  the 
establishment and spread of harmful biotic agents. 

Suggested action 

objectives 

  Complete the Natura 2000 designation process, in land 
in  place  clearly  defined 
and  at  sea,  and  put 
conservation 
necessary 
conservation  measures  for  the  sites  and  provide 
adequate  resources  for  their  implementation  in  order 
to maintain/restore species and habitats of community 
interest  to  a  favourable  conservation  status  across 
their natural range. 

and 

the 

  Continue 

to  develop  and  promote  smart  and 
streamlined  implementation  approaches,  in  particular 
as  regards  site  and  species  permitting  procedures, 
and  data 
ensuring 
with 
availability. 
stakeholders. 

knowledge 
communication 

the  necessary 
Strengthen 

  Strengthen  capacity  building 

improve 
management  of  Natura  2000  sites  and  species 
protection  regimes  and  to  ensure  full  integration  with 
other policies and their associated funds. 

in  order  to 

37 These figures show the percentage of biogeographical assessments in 
each category of conservation status for habitats and species, 
respectively. The information is based on Article 12 of the Birds 
Directive reporting - national summary of Portugal 

As  for  the  species,  19%  of  the  assessments  were 
favourable  in  2013  (EU  27:  23%),  31%  at  unfavourable-
inadequate  (EU27:  42%)  and  10%  unfavourable-bad 
status (EU27: 18%). This is depicted in Figure 636. 8% and 
5.7%  of  the  unfavourable  assessments  respectively  for 
species  and  habitats  were  showing  a  positive  trend  in 
2013.  However,  the  conservation  status  between  2007 
and 2013 does not seem to be on a positive trend.  

Figure 7 shows that as far as birds are concerned, 43% of 
the  breeding  species  showed  short-term  increasing  or 
stable population trends (for wintering species this figure 
was 57%). 

As  regards  forests,  Portugal  faces  challenges  related  to 
the  fact  that most  of  the  forest  land  is  privately  owned, 
the intensive agriculture, the spreading of the pine wood 
nematode, the intensive and the forest fire risk. 

35 These figures show the percentage of biogeographical assessments in 
each category of conservation status for habitats and species (one 
assessment covering 1 species or 1 habitat in a given biographical 
region with the Member State), respectively. The information is based 
on Article 17 of the Habitats Directive reporting - national summary of 
Portugal 
36 Please note that a direct comparison between 2007 and 2013 data is 
complicated by the fact that Bulgaria and Romania were not covered 
by the 2007 reporting cycle, that the ‘unknown’ assessments have 
strongly diminished particularly for species, and that some reported 
changes are not genuine as they result from improved data / 
monitoring methods. 

Environmental Implementation Report – Portugal 

 
 
                                                            
                                                            
 
  Continue  the efforts  to  improve  the  mainstreaming  of 
nature targets, namely Natura 2000 implementation, in 
cross-cutting  and  sectoral  policies,  programmes  and 
strategies,  particularly  in  the  areas  of  agriculture, 
forestry,  fisheries,  energy,  climate,  land  and  marine 
spatial planning. 

Estimating Natural Capital 

The EU Biodiversity Strategy to 2020 calls on the Member 
States  to  map  and  asses  the  state  of  ecosystems  and 
their  services  in  their  national  territory  by  2014,  assess 
the  economic  value  of  such  services,  and  promote  the 
integration of these values into accounting and reporting 
systems at EU and national level by 2020. 

in  2009  a  national  ecosystem 
Portugal  completed 
assessment  following  the  conceptual  framework  of  the 
Millennium  Ecosystem  Assessment.  Several  local  scale 
and  thematic  (montado  ecosystems)  assessments  have 
been developed  in  last  years.  In  2014  a  short  term  pilot 
MAES38  was  carried  out  in  the  south  of  Portugal  which 
tested,  at  a 
II  Alentejo), 
methodologies  and  indicators  for  mapping  ecosystems, 
assessing 
their  condition  and  mapping  ecosystem 
services39, particularly those connected to agriculture and 
forest ecosystems. The project provided highlights on the 
added value of the ecosystem services within the broader 
economy of the region. 

regional 

(NUTS 

level 

A  process  is  planned  for  the  development  of  a  MAES 
networking platform for relevant scientific projects, data 
and information sources and for engaging other relevant 
stakeholders and public authorities. Portuguese research 
research  projects 
teams  are 
OpenNESS,  OPERA,  ESMERALDA  and  within  IPBES  global 
and regional assessments. 

in  various 

involved 

Portugal  13 

The importance of ecosystem services and natural capital 
for  growth  and  jobs  has  been  addressed  in  government 
initiatives  on  the  green  economy,  green  tax  reforms, 
TEEB  approaches  and  ecosystem  services  assessments, 
and included in the programming of ESIF 2014-2020. 

A  kick-off  MAES  conference  was  held  in  Portugal  in 
December 2015 to debate with the scientific community, 
decision-makers  and  private  stakeholders  on  the  views 
and  perspectives  of  a  national  MAES  Portugal  and  the 
foreseen  outcomes  for  policy  making  up  to  2020. 
Portugal is now preparing a long term process, aiming at 
covering the mainland Portugal territory. 

Portugal  co-led  the  MAES  EU  pilot  study  on  forest 
ecosystems in 2014 and participates in the MAES EU pilot 
study on marine ecosystems. It has also taken part in the 
EU  MAES  pilot  study  on  urban  ecosystem  services 
(involving  the  municipalities  of  Lisbon,  Oeiras  and 
Cascais) launched in 2015. 

Suggested action 

  Continue  supporting  the  mapping  and  assessment  of 
ecosystems  and  their  services,  and  the  valuation  and 
development  of  natural  capital  accounting  systems, 
for  monitoring 
through 
economic  progress  and  further  developing  ecosystem 
accounts. 

appropriate 

indicators 

Green Infrastructure 

The  EU  strategy  on  green  infrastructure40  promotes  the 
incorporation  of  green  infrastructure  into  related  plans 
and  programmes  to  help  overcome  fragmentation  of 
habitats  and  preserve  or  restore  ecological  connectivity, 
enhance  ecosystem  resilience  and  thereby  ensure  the 
continued provision of ecosystem services. 

Green  Infrastructure  provides  ecological,  economic  and 
social  benefits  through  natural  solutions.  It  helps  to 
understand the value of the benefits that nature provides 
to human society and to mobilise investments to sustain 
and enhance them. 

Portugal  has  incorporated  ecological  systems  in  spatial 
land planning since 1999, namely at municipality (Master 
Plans) and regional scales, and also at sector scale (forest 
management  plans).  An  inter-ministerial  coordination 
mechanism  is  in  charge  of  promoting  the  integration  of 
conservation  and  sustainable  use  of  biodiversity  into 
various  sectoral  policies41,  including  considerations  in 
ecological network planning. 

Since  1983,  the  most  sensitive  biophysical  areas  across 

38 Mapping and assessment of ecosystems and their services. 
39 Ecosystem services are benefits provided by nature such as food, 
clean water and pollination on which human society depends. 

40 European Union, Green Infrastructure — Enhancing Europe’s Natural 
Capital, COM/2013/0249 
41 Council of Ministers Resolution Nº 41/99 of 17 May 1999. 

Environmental Implementation Report – Portugal 

 
 
                                                            
                                                            
the country's territory have been identified and mapped 
according to structural and functional criteria defined by 
the National Ecological Reserve Act (REN) integrated into 
the  national  network  for  the  conservation  of  nature  in 
2008. 

The  REN  supports  inter  alia  biodiversity  objectives  at 
landscape  level  and  the  establishment  of  a  functional 
network  of  core  areas  for  nature  conservation  and 
biodiversity. 

A  review  of  this  regime  is  ongoing  in  order  to  further 
develop the services pillar of REN (e.g. risk management, 
landslides,  coastal  erosion,  climate 
soil  erosion, 
adaptation). 

soil 

In  the  REN,  various  Green  Infrastructure  elements  are 
planned, including protected areas, sustainable use areas 
and  natural  connectivity  features,  risk  mitigation  and 
management  areas.  The  Portuguese  land  use  planning 
policy  is  based  on  a  hierarchical  system  of  territorial 
management,  which  operates  at  national,  regional  and 
municipal level. At the national level, the REN aims to: 1) 
Protect  water  and 
resources  and  ensure 
environmental  goods  and  services  essential  to  the 
development of human activities; 2) Prevent and reduce 
the  effects  of  degradation  of  groundwater  recharge, 
flood  risk  maritime,  drought,  soil  erosion  and  mass 
movements  on  slopes  contributing  to  the  adaptation  of 
the  effects  of  climate  changes  ensuring  environmental 
sustainability;  and  3)  Contribute  to  the  connectivity  and 
ecological  coherence  of  areas  and  natural  connectivity 
features.  The  REN  thereby  also  relates  to  policies  on 
water  (including  the  EU  Water  Framework  Directive), 
agriculture and adaptation to climate change. 

Examples  of  good  operational  approaches  to  Green 
Infrastructure  in  Portugal  include  the  Green  Corridor  in 
Lisbon42;  the  green  roof  of  the  waste  water  treatment 
plant in Alcântara, Lisbon43; or the Ecological Restoration 
and  Conservation  of  Praia  da  Vitória  Coastal  Wetland 
Green Infrastructure (Azores)44. 

There  is  scope  for  demonstrating  the  socio-economic 
growth  benefits  of  GI,  in  urban,  peri-urban,  coastal  and 
rural context while promoting territorial cohesion. 

A good focus would be to develop a Green Infrastructure 
approach at national, regional and local level (including in 
urban areas), coordinated with ecosystem and ecosystem 
services  assessments 
restoration 
planning,  taking 
into  account  the  elements  already 
available  (e.g.  REN,  spatial  plans,  assessments)  and  new 
and innovative solutions on nature-based approaches. 

and  ecosystem 

Portugal  14 

Soil protection 

further  soil  degradation  and 

The  EU  Soil  Thematic  Strategy  highlights  the  need  to 
ensure  a  sustainable  use  of  soils.  This  requires  the 
the 
prevention  of 
preservation of its functions, as well as the restoration of 
degraded  soils.  The  2011  Road  Map  for  Resource-
Efficient  Europe,  part  of  Europe  2020  Strategy  provides 
that  by  2020,  EU  policies  take  into  account  their  direct 
and  indirect  impact  on  land  use  in  the  EU  and  globally, 
and  the  rate  of  land  take  is  on  track  with  an  aim  to 
achieve no net land take by 2050. 

SDG  15  requires  countries  to  combat  desertification, 
restore degraded land and soil, including land affected by 
desertification, drought and floods, and strive to achieve 
a land-degradation-neutral world by 2030. 

Soil is an important resource for life and the economy. It 
provides  key  ecosystem  services  including  the  provision 
of food, fibre and biomass for renewable energy, carbon 
sequestration,  water  purification  and  flood  regulation, 
the provision of raw and building material. Soil is a finite 
and  extremely 
increasingly 
degrading  in  the  EU.  Land  taken  by  urban  development 
and infrastructure is highly unlikely to be reverted to its 
natural  state;  it  consumes  mostly  agricultural  land  and 
increases  fragmentation  of  habitats.  Soil  protection  is 
indirectly  addressed  in  existing EU policies  in  areas  such 
as  agriculture,  water,  waste,  chemicals,  and  prevention 
of industrial pollution. 

resource  and 

fragile 

Artificial  land  cover  is  used  for  settlements,  production 
systems and infrastructure. It may itself be split between 
built-up areas (buildings) and non-built-up areas (such as 
linear transport networks and associated areas). 

The  annual  land  take  rate  (growth  of  artificial  areas)  as 
provided  by  CORINE  Land  Cover  was  0.52%  in  Portugal 
over  the  period  2006-12,  just  above  the  EU  average 
(0.41%).  It  represented  1853  hectares  per  year  and 
mainly driven by housing, services and recreation as well 
as transport and infrastructures45. 

The percentage of built up land in 2009 was 2.83%, below 
the EU average (3.23%)46. 

The soil water erosion rate in 2010 was 2.31 tonnes per 
ha per year, close to EU-28 average (2.46 tonnes)47. 

Figure 8 shows the different land cover types in Portugal 
in 2012. 

42 http://www.lisboadiariodebordo.com/#!corredor-verde-lisboa/cg9d  
43 http://www.adp.pt/pt//?id=61&img=39&bl=6 
44 http://cmpv.pt/minisites/life/index.php?op=textos&codtexto=5  

45 European Environment Agency Draft results of CORINE Land Cover 
(CLC) inventory 2012; mean annual land take 2006-12 as a % of 2006 
artificial land. 
46 European Environment Agency, 2016. Imperviousness and 
imperviousness change 
47 Eurostat, Soil water erosion rate, Figure 2, accessed November 2016 

Environmental Implementation Report – Portugal 

 
                                                            
                                                            
Figure 8: Land Cover types in Portugal 201248 

In  2014,  the  National  Action  Program  to  Combat 
Desertification  (PANCD)49  was  updated  (building  on  a 
previous version of 1999). PANCD is fully aligned with the 
vision,  the  mission,  and  the  strategic  and  operational 
objectives  and  goals  of  the  10  Year  Strategy  of  the 
UnitedNations Convention to Combat Desertification.  

framework 

responsible 

PANCD  is  a  cornerstone  Strategy  for  the  protection  and 
in  Portugal  defining  the 
recovery  of  affected  soil 
institutional 
for  ensuring 
implementation  and  establishing  a  desertification 
monitoring  system  to  assess  its  effects  and  trends.  It 
defines  a  strategic  vision,  setting 
four  strategic 
objectives:  1)  To  promote  the  improvement  of  living 
conditions of the populations of susceptible areas; 2) To 
promote  the  sustainable  management  of  ecosystems  of 
susceptible  areas  and  the  recovery  of  affected  areas;  3) 
Generate global benefits and potential synergies with the 
processes of climate change and biodiversity in sensitive 
areas;  4)  To  promote  and  mobilize  resources  to 
implement  the  UNCCD  and  PANCD)  and  associated 
specific objectives, lines of action and indicators. 

There  are  still  not  EU-wide  datasets  enabling  the 
provision of benchmark indicators for soil organic matter 
decline, contaminated sites, pressures on soil biology and 
diffuse  pollution.  An  updated  inventory  and  assessment 

Portugal  15 

of  soil  protection  policy  instruments  in  Portugal  and 
other  EU  Member  States  is  being  performed  by  the  EU 
Expert Group on Soil Protection. 

Marine protection 

The EU Coastal and Marine Policy and legislation require 
that by 2020 the impact of pressures on marine waters is 
reduced  to  achieve  or  maintain  good  environmental 
status and coastal zones are managed sustainably. 

SDG  14  requires  countries  to  conserve  and  sustainably 
for 
the  oceans,  seas  and  marine  resources 
use 
sustainable development. 

The Marine Strategy Framework Directive (MSFD)50 aims 
to  achieve  Good  Environmental  Status  (GES)  of  the  EU's 
marine  waters  by  2020  by  providing  an  ecosystem 
approach  to  the  management  of  human  activities  with 
impact  on  the  marine  environment.  The  Directive 
requires  Member  States  to  develop  and  implement  a 
marine  strategy  for  their  marine  waters,  and  cooperate 
with  Member  States  sharing  the  same  marine  region  or 
subregion. 

As part of their marine strategies, Member States had to 
make  an  initial  assessment  of  their  marine  waters, 
determine  GES51  and  establish  environmental  targets  by 
July  2012.  They  also  had  to  establish  monitoring 
programmes for the on-going assessment of their marine 
waters  by  July  2014.  The  next  element  of  their  marine 
strategy is to establish a Programme of Measures (2016). 
The  Commission  assesses  whether  these  elements 
constitute  an  appropriate  framework  to  meet  the 
requirements of the MSFD. 

Portuguese  marine  waters  are  part  of  the  North-East 
Atlantic  Ocean  marine  region  and  are  divided  into  four 
subdivisions: the continental subdivision, the Acores and 
Madeira  subdivisions  and  the 
'extended  continental 
shelf'.  Portugal  is  party  to  the  Convention  for  the 
protection of the marine environment of the North-East 
Atlantic (OSPAR Convention). In the open ocean areas of 
the  Atlantic  the  main  threats  to  biodiversity  are 
potentially:  overfishing,  bottom-trawling 
(note  that 
Portugal decided to ban bottom-trawling for its national 
fleet  and  is  seeking  to  ban  it  for  all  EU  fleet),  discards, 
and pollution resulting from accidents (e.g. oil spills). 

In  2014  Portugal  reported  only  for  its  continental  sub-
division  (mainland  waters)  and  partially  for  its  extended 
continental shelf area beyond 200 nm and completed the 
reporting exercise in 2015 for Macaronesia. Portugal did 

48 European Environment Agency, Land cover 2006 and changes country 
analysis [publication forthcoming] 
49 Resolution of the Council of Ministers No. 78/2014 
https://dre.pt/application/file/65985917  

50 European Union, Marine Strategy Framework Directive 2008/56/EC  
51 The MSFD defines Good Environmental Status (GES) in Article 3 as: 
“The environmental status of marine waters where these provide 
ecologically diverse and dynamic oceans and seas which are clean, 
healthy and productive” 

Environmental Implementation Report – Portugal 

 
 
                                                            
                                                            
Portugal  16 

without  delay,  addresses  all  descriptors  and 
appropriate to monitor progress towards its GES. 

is 

not  provide  a  clear  determination  of  GES.  Portugal  also 
provided insufficient details to evaluate if and when GES 
was achieved52. 

It is therefore too early to say whether Portugal's waters 
in 
in  good  status  as  there  were  weaknesses 
are 
determining what GES is the in first place. 

Portugal also established a monitoring programme of its 
marine  waters  in  2014  for  all  descriptors,  except  for 
eutrophication  and  hydrographic  changes.  It  seems  that 
its  monitoring  programmes  for  all  descriptors  except 
commercial 
further  refinement  and 
development to constitute an appropriate framework to 
monitor  progress  towards  GES.  It  is  also  not  clear  from 
Portugal's  reporting  whether  its  monitoring  programme 
is  already  being  implemented  or  whether  it  will  come 
into force at a later date53. 

fisheries  need 

In 2016 Portuguese marine protected areas (both Natura 
2000  sites  and  national  designations)  covered  113  107 
km² of which 536 km² were designated in the continental 
subdivision,  112  334  km²  were  designated  around  the 
Azores and 237 km² around Madeira. 

The Commission's reports on the implementation of the 
MSFD54  provide  guidance  to  assist  Portugal 
its 
implementation of the MSFD. 

in 

Suggested action 

  Continue  work  to  improve  the  definitions  of  Good 
(GES) 
for 
in  particular 
Environmental 
biodiversity  descriptors, 
including  through  regional 
cooperation by using the work of the relevant Regional 
Sea Convention. 

Status 

  Address knowledge gaps. 
  Continue to integrate existing monitoring programmes 
required  under  other  EU  legislation  and  to  implement 
joint  monitoring  programmes,  where  they  exist, 
developed at (sub) regional level. 

  Enhance  comparability  and  consistency  of  monitoring 

methods within the Portuguese marine region. 

  Ensure that its monitoring programme is implemented 

52 Commission Staff Working Document Accompanying the Commission 
Report on "The first phase of implementation of the Marine Strategy 
Framework Directive (2008/56/EC) - The European Commission's 
assessment and guidance" (SWD(21014) 049 final and COM(2014)097 
final) 
53 Commission Staff Working Document Accompanying the Commission 
Report on "The first phase of implementation of the Marine Strategy 
Framework Directive (2008/56/EC) - The European Commission's 
assessment and guidance" (SWD(21014) 049 final and COM(2014)097 
final) 
54 Report from the Commission "The first phase of implementation of 
the Marine Strategy Framework Directive (2008/56/EC) - The European 
Commission's assessment and guidance" COM(2014)097 & 
Commission Staff Working Document Accompanying the Commission 
Report assessing Member States' monitoring programmes under the 
Marine Strategy Framework Directive (COM(2017)3 and SWD(2017)1 
final). 

Environmental Implementation Report – Portugal 

 
                                                            
 
 
 
 
 
Portugal  17 

3. Ensuring citizens' health and quality of life 

Air quality 

ceilings57. 

EU Clean Air Policy and legislation require that air quality 
in  the  Union  is  significantly  improved,  moving  closer  to 
the  WHO  recommended  levels.  Air  pollution  and  its 
impacts on ecosystems and biodiversity should be further 
reduced with the long-term aim of not exceeding critical 
loads  and  levels.  This  requires  strengthening  efforts  to 
reach  full  compliance  with  Union  air  quality  legislation 
and defining strategic targets and actions beyond 2020. 
The EU has developed an extensive body of legislation55, 
which establishes health based standards and objectives 

At the same time, air quality in Portugal continues to give 
cause  for  concern.  For  the  year  2013,  the  European 
that  about  6 070 
Environment  Agency  estimated 
premature  deaths  were  attributable  to  fine  particulate 
matter concentrations58, 420 to ozone concentration and 
150  to  nitrogen  dioxide59  concentrations60.  This  is  due 
also  to  exceedances  above  the  EU  air  quality  standards 
such as shown in Figure 961. 

For 2014, exceedances above the EU air quality standards 
have been registered for nitrogen dioxide (NO2) in three 
air quality zones (Porto, Braga and Lisbon). Furthermore, 

Figure 9: Attainment situation for PM10, NO2 and O3 in 2014 

for  a  number  of  pollutants  in  air.  Member  States  are 
required  to  ensure  that  up-to-date 
information  on 
ambient  concentrations  of  the  different  pollutants  is 
routinely  made  available  to  the  public.  The  National 
Emission  Ceilings  Directive  provides 
for  emission 
reductions  at  national  level  that  should  be  achieved  for 
six main pollutants. 

The  emission  of  several  air  pollutants  has  decreased 
significantly in Portugal56. Reductions between 1990 and 
2014  for  sulphur  oxides  (-89%),  nitrogen  oxides  (-33%), 
ammonia  (-31%)  as  well  as  volatile  organic  compounds 
(-37%)  ensure  air  emissions  for  these  pollutants  are 
the  currently  applicable  national  emission 
within 

55 European Commission, 2016. Air Quality Standards 
56 See EIONET Central Data Repository and Air pollutant emissions data 
viewer (NEC Directive) 

for  several  air  quality  zones  the  target  values  and  long-

57 The current national emission ceilings apply since 2010 (Directive 
2001/81/EC); revised ceilings for 2020 and 2030 have been set by 
Directive (EU) 2016/2284 on the reduction of national emissions of 
certain atmospheric pollutants, amending Directive 2003/35/EC and 
repealing Directive 2001/81/EC. 
58 Particulate matter (PM) is a mixture of aerosol particles (solid and 
liquid) covering a wide range of sizes and chemical compositions. 
PM10 (PM2.5) refers to particles with a diameter of 10 (2.5) 
micrometres or less. PM is emitted from many human sources, 
including combustion. 
59 NOx is emitted during fuel combustion e.g. from industrial facilities 
and the road transport sector. NOx is a group of gases comprising 
nitrogen monoxide (NO) and nitrogen dioxide (NO2). 
60 European Environment Agency, 2016. Air Quality in Europe – 2016 
Report. (Table 10.2, please see details in this report as regards the 
underpinning methodology) 
61 Based on European Environment Agency, 2016. Air Quality in Europe 
– 2016 Report. (Figures 4.1, 5.1 and 6.1) 

Environmental Implementation Report – Portugal 

 
 
 
 
                                                            
                                                            
 
Portugal  18 

term objectives regarding  ozone62 concentration are not 
being met.63  

Noise 

The  persistent  breaches  of  air  quality  requirements  (for 
PM10  and  NO2),  which  have  severe  negative  effects  on 
health  and  environment,  are  being  followed  up  by  the 
European  Commission  through  infringement  procedures 
covering  all  the  Member  States  concerned,  including 
Portugal.  The  aim  is  that  adequate  measures  are  put  in 
place to bring all zones into compliance. 

To address the air quality problems Portugal has recently 
approved  the  National  Strategy  for  Air  (ENAR  202064), 
which  proposes  actions  concerning  transport,  industrial, 
agricultural and domestic heating to reduce air emissions 
and  should  be  applied  at  local,  regional  and  national 
level.  It  remains  to  be  seen  how  these  actions  will  be 
implemented in practice. 

It is estimated that the health-related external costs from 
air  pollution  in  Portugal  are  above  EUR  4  billion/year 
(income  adjusted,  2010),  which  include  not  only  the 
intrinsic  value  of  living  a  full  health  life  but  also  direct 
costs to the economy. These direct economic costs relate 
to  1.7  million  workdays  lost  each  year  due  to  sickness 
related  to  air  pollution,  with  associated  costs  for 
employers  of  EUR  159  million/year  (income  adjusted, 
2010),  for  healthcare  of  above  EUR  14  million/year 
(income adjusted, 2010), and for agriculture (crop losses) 
of EUR 46 million/year (2010)65. 

Suggested action 

  Maintain  downward  emissions  trends  of  air  pollutants 
in order to achieve full compliance with air quality limit 
values  -  and  reduce  adverse  air  pollution  impacts  on 
health, environment and economy. 

  Reduce nitrogen oxide (NOx) emissions to comply with 
currently applicable national emission ceilings66 and/or 
(and  ozone 
(NO2) 
to 
concentrations), 
inter  alia,  by  reducing  transport 
related emissions - in particular in urban areas. 

reduce  nitrogen  dioxide 

62 Low level ozone is produced by photochemical action on pollution 
and it is also a greenhouse gas. 
63 See The EEA/Eionet Air Quality Portal and the related Central Data 
Repository 
64
Resolução do Conselho de Ministros n.º 46/2016, de 26 de Agosto de 
2016 
65 These figures are based on the Impact Assessment for the European 
Commission Integrated Clean Air Package (2013). 
66 Under the provisions of the revised National Emission Ceilings 
Directive, Member States now may apply for emission inventory 
adjustments. Pending evaluation of any adjustment application, 
Member States should keep emissions under close control with a view 
to further reductions. 

The  Environmental  Noise  Directive  provides  for  a 
common  approach  for  the  avoidance,  prevention  and 
reduction  of  harmful  effects  due  to  exposure  to 
environmental noise. 

Excessive  noise  is  one  of  the  main  causes  of  health 
issues67.  To alleviate  this,  the  EU  acquis  sets  out  several 
requirements, 
including  assessing  the  exposure  to 
environmental  noise  through  noise  mapping,  ensuring 
that information on environmental noise and its effects is 
made  available  to  the  public,  and  adopting  action  plans 
with  a  view  to  preventing  and  reducing  environmental 
noise  where  necessary  and  to  preserving  the  acoustic 
environment quality where it is good. 

Portugal's  implementation  of  the  Environmental  Noise 
Directive68 is significantly delayed. The noise mapping for 
the  most  recent  reporting  round,  for  the  reference  year 
2011,  is  only 33%  complete for  agglomerations, 68%  for 
major roads and 47% for major railways. Noise mapping 
for  major  airports  is  100%  complete.  Action  plans  for 
noise  management  in  the  current  period  have  been 
adopted  for  only  17%  of  agglomerations,  5%  of  major 
roads  and  0%  of  major  railways.  For  airports,  the 
Portuguese authorities have fulfilled all their obligations. 
The European Commission has contacted the Portuguese 
authorities  with  regard  to  the  missing  noise  maps  and 
action plans, and continues to follow up on the situation. 

Suggested action 

  Complete  noise  mapping  and  action  plans  for  noise 

management in urban areas. 

Water quality and management 

(including  surface  and  ground  waters) 

The  EU  water  policy  and  legislation  require  that  the 
impact  of  pressures  on  transitional,  coastal  and  fresh 
waters 
is 
significantly  reduced  to  achieve,  maintain  or  enhance 
good  status  of  water  bodies,  as  defined  by  the  Water 
Framework Directive; that citizens throughout the Union 
benefit from high standards for safe drinking and bathing 
water;  and  that  the  nutrient  cycle  (nitrogen  and 
phosphorus)  is  managed  in  a  more  sustainable  and 
resource-efficient way. 

67 WHO/JRC, 2011, Burden of disease from environmental noise, 
Fritschi, L., Brown, A.L., Kim, R., Schwela, D., Kephalopoulos, S. (eds), 
World Health Organization, Regional Office for Europe, Copenhagen, 
Denmark 
68 The Noise Directive requires Member States to prepare and publish, 
every 5 years, noise maps and noise management action plans for 
agglomerations with more than 100,000 inhabitants, and for major 
roads, railways and airports.  

Environmental Implementation Report – Portugal 

 
 
 
                                                            
                                                            
SDG  6  encourages  countries  to  ensure  availability  and 
sustainable management of water and sanitation for all. 

The  main  overall  objective  of  EU  water  policy  and 
legislation  is  to  ensure  access  to  good  quality  water  in 
sufficient  quantity  for  all  Europeans.  The  EU  water 
acquis69  seeks  to  ensure  good  status  of  all  water  bodies 
across Europe by addressing pollution sources (from e.g. 
agriculture, urban areas and industrial activities), physical 
and  hydrological modifications  to  water  bodies)  and  the 
management of risks of flooding.  

River  Basin  Management  Plans 
(RBMPs)  are  a 
requirement  of  the  Water  Framework  Directive  and  a 
means  of  achieving  the  protection,  improvement  and 
sustainable use of the water environment across Europe. 
This includes surface freshwaters such as lakes and rivers, 
groundwater,  estuaries  and  coastal  waters  up  to  one 
nautical mile. 

Portugal  has  provided  information  to  the  Commission 
from  its  second  generation  of  RBMPs.  However,  as  the 
Commission  has  not  yet  been  able  to  validate  this 
information  for  all  Member  States,  it  is  not  reported 
here. 

In  its  first  generation  of  RBMPs  Portugal  reported  the 
status  of  1705  rivers,  122  lakes  (of  which  97  are 
reservoirs),  53 
transitional,  65  coastal  and  149 
groundwater bodies. 57% of natural surface water bodies 
achieve  a  good  or  high  ecological  status70  and  only  28% 
of  heavily  modified  or  artificial  water  bodies  achieve  a 
good  or  high  ecological  potential.  Only  27%  of  surface 
water bodies (while the status of 72% is unknown), 30% 
of  heavily  modified  and  artificial  water  bodies  (70% 
unknown) and 83% of groundwater bodies achieve good 
chemical  status71.  98%  of  groundwater  bodies  are  in 
good quantitative status. 

The  main  pressure  on  the  Portuguese  surface  waters  is 
diffuse pollution72 that affects 46% of water bodies. Point 
sources of pollution affect 27% of water bodies followed 
by  flow  regulation  and  morphological  alterations  that 
affect  26%.  There  are  some  regional  differences,  e.g. 
diffuse sources of pollution affect all water bodies in the 
Guadiana  river  basin  district  but  only  27%  in  the  Douro 

69 This includes the Bathing Waters Directive (2006/7/EC); the Urban 
Waste Water Treatment Directive (91/271/EEC) concerning discharges 
of municipal and some industrial waste waters; the Drinking Water 
Directive (98/83/EC) concerning potable water quality; the Water 
Framework Directive (2000/60/EC) concerning water resources 
management; the Nitrates Directive (91/676/EEC) and the Floods 
Directive (2007/60/EC) 
70 Good ecological status is defined in the Water Framework Directive, 
in terms of the quality of the biological community, the hydrological 
characteristics and the chemical characteristics. 
71 Good chemical status is defined in the Water Framework Directive in 
terms of compliance with all the quality standards established for 
chemical substances at European level. 
72 Diffuse pollution comes from widespread activities with no one 
discrete source. 

Portugal  19 

river basin district. 

the 

The Portuguese RBMPs Plans have some deficiencies that 
result in uncertainties about the status and effectiveness 
of  Programmes  of  Measures.  In  particular  there  are 
weaknesses  in  monitoring,  methodologies  for  status 
assessment  and 
link  between  pressures  and 
Programmes  of  Measures.  The  planned  measures  are 
expected  to  result  in  improvement  of  ecological  and 
chemical  status  of  surface  water  bodies  by  7%  and  31% 
respectively. 
bring 
improvement  of  ecological  potential  of  artificial  and 
heavily  modified  water  bodies73  by  14%  and  chemical 
status  by  11%.  The  chemical  status  of  groundwater 
should improve by 2%74. 

The  measures 

should 

also 

The  Commission  is  assessing  on  a  regular  basis  the 
implementation of the Water Framework Directive by the 
Member States75. 

As  regards  drinking  water,  Portugal  reaches  now  very 
high  compliance  rates  of  99-100%  for  microbiological, 
chemical  and  indicator  parameters  laid  down  in  the 
Drinking Water Directive76. 

As  shown  in  Figure  10,  in  2015,  in  Portugal,  out  of  569 
bathing waters, 84.5 % were of excellent quality, 9.7 % of 
good  quality,  2.1  %  of  sufficient  quality  (548  in  total,  all 
coastal  bathing  waters).  3  bathing  waters  were  of  poor 
quality  or  non-compliant  while  it  was  not  possible  to 
assess the remaining 18 bathing waters. This was mainly 
due  to  the  fact  that  the  2014-2015  season  registered 
precipitation  values  below  average,  thereby  causing 
dryness in some bathing sites (inland bathing waters). 

in  the  areas  of 

Since  1993  the  quality  of  bathing  water  has  improved 
mainly  due  to  the  control  of  faecal  pollution  sources 
existing 
influence,  as  a  result  of 
considerable investments in the implementation of waste 
water  treatment  infrastructure  and  the  approval  of 
several instruments for territorial management. In inland 
waters the percentage rose from 69% in 2000 to 83% in 
2015  and  in  coastal  transition  waters  from  92%  to  97%. 
More concretely in 2015, the last available year, the rate 
least  sufficient  quality 
of  bathing  waters  with  at 
increased  from  94.3  %  to  96.3%  since  bathing  season 
201477. 

73 Many European river basins and waters have been altered by human 
activities, such as land drainage, flood protection and building of dams 
to create reservoirs. 
74 For groundwater, a precautionary approach has been taken that 
comprises a prohibition on direct discharges to groundwater, and a 
requirement to monitor groundwater bodies. 
75 More information on the implementation status of the Water 
Framework Directive can be found here 
76 Commission's Synthesis Report on the Quality of Drinking Water in 
the Union examining Member States' reports for the 2011-2013 
period, foreseen under Article 13(5) of Directive 98/83/EC; 
COM(2016)666 
77 State of bathing waters 2015-National Report Portugal 

Environmental Implementation Report – Portugal 

 
                                                            
                                                            
 
Figure 10: Bathing water quality 2012 – 201578 

Nitrate  pollution  in  Portugal  is  an  issue  especially  in 
livestock intensive areas. According to the last report on 
the implementation of the Nitrates Directive, referring to 
the period 2008-2011, nitrate levels in groundwater have 
remained  steady  over  the  last  years,  with  high  levels  in 
around 20% of monitoring stations.  

Several  measures  of  the  nitrates  action  programmes 
were  reinforced  through  the  different  revisions  in  the 
past  years.  As  regards  controls,  the  most  challenging 
measures  in  terms  of  compliance  related  to  storage 
capacity and balanced fertilisation, including the respect 
of 170 Kg/ha/year obligation. 

In  Portugal,  around  80%  of 
the  overall  water 
consumption is used by agriculture and livestock farming. 
Although  the  amount  of  water  used  in  the  agricultural 
sector has been reduced in the last years, there is still an 
important  water  saving  potential,  related  to  a  better 
water pricing policy. The potential for innovation leading 
to water savings is also big. 

Regarding the implementation of the Urban Waste Water 
Treatment  Directive  (reported  in  2014),  in  Portugal, 
99.8%  of  the  waste  water  load  is  collected,  88.6%  is 
submitted  to  secondary  treatment  of  which  77.3%  is 
compliant  with  the  requirements  of  the  Directive  (the 
target  is  92.5%)  and  73%  of  the  waste  water  load 
receives  treatment  more  stringent  than  secondary.  It 
must  also  be  highlighted  the  difference  in  compliance 
rates  at  regional  level,  especially  regarding  treatment 
(e.g.  "Norte",  with  higher  values  than  "Alentejo"  or 
"Madeira"). 

Despite  the  improvement  in  compliance  throughout  the 
years,  for  which  the  use  of  EU  funding  has  been 
fundamental,  the  incomplete  implementation  of  the 
Directive has led to several rulings of the Court of Justice 

78 European Environment Agency, State of bathing water, 2016 

Portugal  20 

of  the  EU  against  Portugal,  including  financial  sanctions, 
which  execution  is  closely  followed-up  by  the  European 
Commission. Therefore, further efforts are needed. 

It should be noted that Portugal is the only EU Member 
State  which  has  identified  "less  sensitive"  areas79,  or 
areas in principle not adversely affected by waste water 
discharges due to their intrinsic features80. 

The  estimated  investment needs  (reported  under article 
17  of  the  Urban  Waste  Water  Treatment  Directive)  to 
reach full compliance with the Directive in Portugal are of 
EUR 183 million81. 

Finally,  natural  water  retention  measures  for  flood 
prevention  are  often  disregarded,  despite  being 
sometimes  more  cost-effective  than  hard  infrastructure 
for  flood  prevention,  as  well  as  being  cheaper  than  the 
costs of flood recovery82. 

Suggested action 

intervention 

  Portugal  should  improve  its  water  policy  in  line  with 
logic  of  the  Water  Framework 
the 
Directive (WFD), i.e. a detailed assessment of pressures 
to  design  effective  Programmes  of  Measures 
addressing  these  pressures  and  the  implementation 
gaps.  The  assessment  methods  should  improve  to 
provide more certainty about the water status and the 
Programmes  of  Measures  should  be  adequately 
funded. 

  New physical  modifications of  water  bodies  should  be 
assessed  in  line  with  Article  4(7)  of  the WFD.  In  these 
assessments  alternative  options  and  adequate 
mitigation measures have to be considered. 

  Agricultural  developments  should  be  duly  taken  into 
account  in  the  implementation  of  the  nitrates  action 
programmes. Address the issues of compliance on the 
ground,  especially  with  reference  to  the  measures  on 
balanced fertilisation and storage capacity. 

  Efforts  should  be  done  to  improve  the  coordinated 
implementation  between  water,  marine  and  nature 
policies. 

  Complete  implementation  of  the  Urban  Waste  Water 
Treatment Directive for all agglomerations, by building 
up the necessary infrastructure. 

79 E.g.: open bays, estuaries and other coastal waters with a good water 
exchange 
80 Portugal reports regularly to the Commission on its areas identified as 
"less sensitive areas" : "Cabo da Roca/Estoril” and “Madeira 
(vertentesul)”. 
81 European Commission, 2016. Urban waste water, 8th implementation 
reports. 
82 RPA, 2014. Study on Economic and Social Benefits of Environmental 
Protection and Resource Efficiency Related to the European Semester. 
Study for the European Commission, Annex 1: Country fiches 

Environmental Implementation Report – Portugal 

 
 
                                                            
 
 
                                                            
Enhancing the sustainability of cities  

implementation87. 

Portugal  21 

The  EU  Policy  on  the  urban  environment  encourages 
cities  to 
implement  policies  for  sustainable  urban 
planning and design, including innovative approaches for 
urban  public 
sustainable 
buildings,  energy  efficiency  and  urban  biodiversity 
conservation. 

transport  and  mobility, 

SDG11  aims  at  making  cities  and  human  settlements 
inclusive, safe, resilient and sustainable. 

Europe is a Union of cities and towns; around 75% of the 
EU  population  are  living  in  urban  areas.83  The  urban 
environment  poses  particular  challenges 
the 
environment  and  human  health,  whilst  also  providing 
opportunities and efficiency gains in the use of resources.  

for 

The  Member  States,  European  institutions,  cities  and 
stakeholders have prepared a new Urban Agenda for the 
EU  (incorporating  the  Smart  Cities  initiative)  to  tackle 
these  issues  in  a  comprehensive  way,  including  their 
connections with social and economic challenges. At the 
heart  of  this  Urban  Agenda  will  be  the  development  of 
twelve  partnerships  on  the  identified  urban  challenges, 
including air quality and housing84.  

The  European  Commission  will 
benchmark system in 201785. 

launch  a  new  EU 

The  EU  stimulates  green  cities  through  awards  and 
funding,  such  as  the  EU  Green  Capital  Award  aimed  at 
cities  with  more  than  100,000  inhabitants  and  the  EU 
Green  Leaf  initiative  aimed  at  cities  and  towns,  with 
between 20,000 and 100,000 inhabitants. 

In the case of Portugal, it should be highlighted that the 
city  of  Torres  Vedras  was  one  of  the  two  cities  winning 
the inaugural EU Green Leaf in 201586. 

Oriented  towards  the  promotion  of  a  sustainable  urban 
development and  in  line  with  the  European  mainstream 
strategies  and  programmes,  Portugal  approved  in  2015 
the 
‘Sustainable  Cities  2020’  strategy,  a  guiding 
document offering the municipalities, the inter-municipal 
entities  and  other  urban  stakeholders  a  roadmap  on 
urban sustainability for the next European funding cycle, 
until  2020.  This  document  outlines  a  set  of  non-binding 
strategic  guidelines  to  be  adopted  by  the  Portuguese 
cities, laying the foundations for its effective application, 
through  the  launch  of  a  range  of  tools  that  promote  its 

83 European Environment Agency, Urban environment 
84 http://urbanagendaforthe.eu/ 
85 The Commission is developing an Urban Benchmarking and 
Monitoring ('UBaM') tool to be launched in 2017. Best practices 
emerge and these will be better disseminated via the app featuring the 
UBaM tool, and increasingly via e.g. EUROCITIES, ICLEI, CEMR, 
Committee of the Regions, Covenant of Mayors and others. 
86 European Commission Press Release, 18th June 2015, Torres Vedras 
wins inaugural European Green Leaf 2015  

This  strategy  seeks  to  reinforce  the  strategic  dimension 
of  the  role  of  cities  in  various  areas,  namely  urban 
regeneration  and  restoration,  urban  environment,  low 
carbon,  climate  change  and  risks,  anchored  on  the 
paradigm  of  sustainable  urban  development,  for  which 
the  involvement  and  commitment  of  a  multiplicity  of 
agents  is  a  fundamental  condition  for  the  focus  of 
interventions not to be limited to the physical dimension 
of the urban space, but rather, seek to achieve purposes 
such  as  economic  development,  social 
inclusion, 
education, participation and environmental protection. 

Personal  transport  exacerbates  seasonal  problems  with 
air  quality  and  traffic  congestion88 
in  the  major 
metropolitan areas in Portugal, namely Lisbon and Porto, 
leading to health and economic costs.  A comprehensive 
approach 
is  needed  to  tackle  this  matter,  bringing 
environmental as well as economic and social benefits. 

The  "Green  Growth  Commitment"  defines  a  target  to 
increase  the  use  of  public  transport  and  points  out 
several  paths  to  meet  this  target,  such  as  the 

87 Council of Ministers Resolution No. 61/2015, August 11 
88 INRIX, 2015. Key Findings: INRIX 2015 Traffic Scoreboard  

Environmental Implementation Report – Portugal 

 
                                                            
 
                                                            
Portugal  22 

International agreements  

The  EU  Treaties  require  that  the  Union  policy  on  the 
environment  promotes  measures  at  the  international 
level  to  deal  with  regional  or  worldwide  environmental 
problems. 

Most  environmental  problems  have  a  transboundary 
nature  and  often  a  global  scope  and  they  can  only  be 
addressed effectively through international co-operation. 
International  environmental  agreements  concluded  by 
the Union are binding upon the institutions of the Union 
and  on  its Member  States. This  requires  the  EU and  the 
Member  States  to  sign,  ratify  and  effectively  implement 
all  relevant  multilateral  environmental  agreements 
(MEAs) in a timely manner. This will also be an important 
contribution  towards  the  achievement  of  the  SDGs, 
which Member States committed to in 2015 and include 
many  commitments  contained  already  in  legally  binding 
agreements. 

The  fact  that  some  Member  States  did  not  sign  and/or 
ratify  a  number  of  MEAs  compromises  environmental 
implementation,  including  within  the  Union,  as  well  as 
in  related  negotiations  and 
the  Union’s  credibility 
the 
international  meetings  where 
participation of third countries to such agreements is an 
established  EU  policy  objective.  In  agreements  where 
voting takes place it has a direct impact on the number of 
votes to be cast by the EU. 

supporting 

Currently,  Portugal  has  signed  but  not  yet  ratified  two 
agreements  under 
the  Convention  on  Long-range 
Transboundary  Air  Pollution:  the  Persistent  Organic 
Pollutions  Protocol  and  the  Heavy  Metals  Protocol.  The 
same applies to the Nagoya Protocol91. 

transport, 

rail 
modernization  of  public 
transport,  the  development  of  mobility  plans  for  major 
large public and private employers, the promotion of less 
pollutant vehicles (including electric vehicles and the use 
of biofuels) and the promotion of soft transport modes. 

including 

It is also important to consider the development of new 
solutions  for  urban  logistics  that  have  the  potential  to 
allow  the  reduction  of  the  number  of  trucks  in  urban 
centers,  and  on  this  matter  it  is  important  to  point  out 
the  participation  of  the  Lisbon  &  Tagus  Valley  region  on 
Project Dorothy89 that aims “to enhance the distribution 
process  of  urban  goods  by  reducing  the  number  of 
vehicles and enhancing environmental standards”. 

is 

issue 

relevant 

Another 
the  decentralization 
implemented  by  the  new  legal  framework  for  public 
transport services90 which has the potential to promote a 
better  planning  and  management  of  these  services,  at 
regional  and  local  level,  allowing  higher  efficiency  levels 
that  are  expected  to  reduce  the  environmental  impacts 
of public transport. 

for 

(1)  City 

the  city: 

'Green  corridor  Lisbon' 

The 
initiative  should  be 
commended  in  this  context  as  an  example  of  green 
infrastructure  benefitting  a  metropolitan  area.  The 
Lisbon  Strategy  for  2010-2024  identified  three  main 
objectives 
regeneration  – 
rehabilitation  of  vacant  buildings  and  degraded  city 
districts  and  green  spaces,  to  reverse  the  depopulation 
process;  (2)  Climate  change  adaptation  –  focus  on  the 
challenges of climate change and the consequent natural 
vulnerabilities  (such  as  flooding),  as  well  as  on  energy 
efficiency, reducing the number of vehicles in circulation 
increasing  the  area  of  green  spaces;  and  (3) 
and 
Connectivity  of  green  spaces  –  implementation  of  a 
network  of  green  spaces  and  corridors  for  recreational 
activities  and protection,  appreciation and promotion  of 
biodiversity  and  of  natural and  cultural landscapes. As  a 
result of the strategy, the size, quality and connectivity of 
green  spaces 
include 
bicycle lanes, bicycle-friendly streets, ecological corridors 
and allotment gardens. The Green corridor networks and 
informal open spaces such as allotment gardens provide 
wider  accessibility  to  urban  residents,  workers  and 
tourists. Other benefits are a positive impact on health by 
promoting 
(walking/cycling), 
environmental  impact  gains  and  additional  income  (and 
jobs) from an increased number of visitors. 

increased.  Elements 

in  Lisbon 

transport 

active 

The  good  practices  of  sustainable  urban  development 
could be spread across the country. 

89 http://www.clusterdorothy.com  
90http://www.imtt.pt/sites/IMTT/Portugues/RJSPTP/Paginas/RJSPTP.as
px  

91 Protocol on Access to Genetic Resources and the Fair and Equitable 
Sharing of Benefits Arising from their Utilization to the Convention on 
Biological Diversity. 

Environmental Implementation Report – Portugal 

 
 
                                                            
 
 
 
                                                            
Part II: Enabling Framework: Implementation Tools 

4. Market based instruments and investment  

Portugal  23 

Green taxation and environmentally harmful 
subsidies 

The Circular Economy Action Plan encourages the use of 
financial  incentives  and  economic  instruments,  such  as 
taxation  to  ensure  that  product  prices  better  reflect 
environmental costs. The phasing out of environmentally 
harmful  subsidies  is  monitored  in  the  context  of  the 
European  Semester  and  in  national  reform  programmes 
submitted by Member States. 

Taxing pollution and resource use can generate increased 
revenue  and  brings  important  social  and  environmental 
benefits.  Moreover,  environmentally-related  taxation  is 
one of the few taxes that are generally not detrimental to 
growth. 

Shifting  taxation  away  from  labour  towards  taxes  less 
harmful  to  growth  remains  a  key  challenge  in  Portugal.  
Following  the  work  carried-out  during  2014  by  the 
"Commission  for  Green  Tax  Reform"  and  some  of  its 
recommendations,  Portugal  adopted  in  2015  a  green 
taxation  reform,  aiming  to  promote  a  more  sustainable 
economic  development  model,  which  is  a  positive  step. 
The  additional  revenue  raised  by  this  green  taxation 
reform  is  to  be  allocated  to  reduce  the  tax  burden  on 
labour, assuming a revenue-neutrality. The effects of this 
reform have still to be assessed. 

There is still scope for considering further measures that 
were not assumed in this green taxation reform. A more 
stable and growth-friendly  tax system  would  help  foster 
confidence and encourage private investment. 

The  2016  Annual  Growth  Survey  highlights  the  need  to 
shift  taxes  away  from  labour  to  create  efficient  and 
growth-friendly  tax  systems  contributing  significantly  to 
increasing  employment  and  adaptability  of  the  labour 
market92. 

Environmental  tax  reform  can  play  an  important  part  in 
sustaining  economic  growth.  Taxing  pollution  and 
resource  use  would  bring  in  additional  revenues,  and  at 
the  same  time  it  would  help  discouraging  activities  that 
will  bring  additional  cost  in  the  future  in  terms  of  clean 
up,  health  costs,  etc.  This  additional  revenue  could  also 
substitute for cuts in spending, therefore help achieving a 
similar net budgetary outcome. 

At  2.25%  of  GDP 
level  of 
environmental  taxes  is  below  the  EU-28  average  of 
2.46%93.  This  rate  has  slightly  increased  from  2.19%  in 

in  2014,  Portugal's 

2013 and 2.14% in 2012. However, the 2012–2014 levels 
are  below  the  2002–2005  values  (2.9%  of  GDP).  In  fact, 
revenues  from  environmental  taxes  have  significantly 
decreased  in  Portugal  during  the  last  decade.    Although 
the effects of the recent green taxation reform have still 
to  be  perceived,  there  is  still  clear  scope  to  increase 
environmental taxes and alleviate the burden on labour. 

Portugal  with  6.59%  of  GDP  is  around  the  EU  average 
(6.35%) regarding the share of environmental taxation in 
revenues  from  taxes  and  social  contributions,  as  shown 
below. 

Figure  11:  Environmental  tax  revenues  as  a  share  of 
total  revenues  from  taxes  and  social  contributions 
(excluding imputed social contributions) in 201494 

As  recognized  in  201495,  the  Commission  for  Green  Tax 
Reform created by the Portuguese Government has been 
a  positive  initiative  in  order  to  improve  environmental 
taxation  in  Portugal  and  the  work  of  this  committee  of 
independent experts should be commended. Its objective 
was  to  review  environmental  and  energy  taxation 

92 Annual Growth Survey 2016, p. 14. 
93 Eurostat, Environmental tax revenues, accessed October 2016 

94 Eurostat, Environmental tax revenues, accessed October 2016 
95 SWD(2014) 423 final, 2 June 2014. 

Environmental Implementation Report – Portugal 

 
 
                                                            
 
                                                            
regimes  with  a  view  to  promoting  a  new  green  fiscal 
framework  which  incentivises  eco-innovation  and  the 
efficient  use  of  resources,  as  well  as  mechanism  for  the 
internalisation  of  environmental  externalities.  It  also 
included  the  potential  contribution  to  reducing  external 
energy  dependence  and  to  inducing  more  sustainable 
production and consumption patterns. 

The final report of this Commission, issued in September 
2014,  includes  an  in-depth  analysis  on  this  matter,  with 
interesting findings and a series of recommendations on 
different  sectors:  energy,  transport,  water,  waste,  land 
planning, forests, biodiversity, etc. It also proposes global 
tax  neutrality,  aiming  at  ensuring  tax  progressivity, 
developing  green  accounting,  boosting  environmental 
information,  developing  helpful  tools  for  the  decision 
making  process,  enhancing  environmental  policies  and 
streamlining environmental funding96. 

A limited number of these recommendations were taken 
on  board  by  the  Portuguese  Government 
its 
subsequent 
legislative  proposal  to  the  Portuguese 
Parliament. 

in 

In  this  respect,  a  2016  study  suggests  that  there  is 
considerable  potential  for  additional  revenue  from 
environmental taxes in Portugal97. Under a good practice 
scenario98  these  taxes  could  generate  an  additional  EUR 
1.39  billion  in  2018,  rising  to  EUR  2.24  billion  in  2030 
(both in real 2015 terms). This is equivalent to 0.73% and 
0.96% of GDP in 2018 and 2030, respectively. 

The reduction of environmentally harmful subsidies (EHS) 
is another key challenge. Portugal is still subsidising fossil 
fuels,  company  cars,  or  diesel  compared  to  petrol  when 
less 
the  policy  objectives  could  be  achieved 
environmentally harmful way. 

in  a 

The  European  Commission  has  highlighted  the  different 
challenges  that  Member  States,  including  Portugal,  face 
in relation to environmentally-related taxation99. 

In  2013  all  Member  States  agreed  to  phase  out  EHS 
'without  delay'100.  Moving  away  from  EHS  can  deliver 
economic,  social  and  environmental  benefits,  allow  for 

96 Final Report "Projeto de Reforma da Fiscalidade Verde", 15.09.2014. 
97 Eunomia Research and Consulting, IEEP, Aarhus University, ENT, 
2016. Study on Assessing the Environmental Fiscal Reform Potential for 
the EU28. N.B. National governments are responsible for setting tax 
rates within the EU Single Market rules and this report is not 
suggesting concrete changes as to the level of environmental taxation. 
It merely presents the findings of the 2016 study by Eunomia et al on 
the potential benefits various environmental taxes could bring. It is 
then for the national authorities to assess this study and their concrete 
impacts in the national context. A first step in this respect, already 
done by a number of Member States, is to set up expert groups to 
assess these and make specific proposals. 
98 The good practice scenario means benchmarking to a successful 
taxation practice in another Member State. 
99 European Commission, 2015. Tax Reforms in EU Member States 2015, 
Institutional Paper 008 Sept. 2015. 
100 7th EU Environmental Action Programme. 

Portugal  24 

and 

competitiveness 

budget 
improved 
consolidation101. It is important to ensure that energy tax 
rates become more consistent across fuels and uses, and 
that  the  tax  system  does  not  unduly  favour  fossil-based 
solutions. 

support 

Furthermore,  according  to  OECD,  Portugal  has  a 
considerable  potential  for  reducing  a  wide  range  of  tax 
exemptions and reductions and phasing out EHS102. 

is  not 

There  is  scope  to  address  the  preferential  treatment  of 
compared  with  petrol.  The  diesel-petrol 
diesel 
differential 
justified  from  an  environmental 
perspective: diesel emits higher levels of a number of air 
pollutants  and  should  be  taxed  higher.  The  diesel 
differential in Portugal is 53% (a figure of 0% means the 
same  level  of  taxation  for  petrol  and  diesel  cars,  i.e.  no 
diesel  differential)103. 
to 
"dieselisation" of the fleet in Europe. 

Lower  diesel 

led 

tax 

The Report of the Commission for Green Tax Reform also 
identifies  many  EHS  that  need  to  be  phased  out. 
However, the pressure from the different interest groups 
benefiting  from  these  EHS  makes  more  difficult  taking 
effective  measures  in  this  regard,  and  therefore  the 
effects  of  such  a  reform  need  to  be  duly  considered 
together with suitable alternatives for the disadvantaged 
categories. 

In  2016,  the  Ministry  of  the  Environment  has  created  a 
working  group  to  further  develop  the  green  taxation 
reform approved in 2014. This work should aim to deliver 
more  incentives  to  green  behaviour  from  2017  onwards 
as  well  as  to  increase  the  share  of  environmental  taxes, 
namely in fossil fuels. 

Therefore, there is scope to continue the implementation 
of  the  "Green  Tax  Reform"  and  further  develop  the 
potential for environmental taxation and the reduction of 
EHS in Portugal. 

Green Public Procurement  

The  EU  green  public  procurement  policies  encourage 
Member States to take further steps to reach the target 
of applying green procurement criteria to at least 50% of 
public tenders. 

Green  Public  Procurement  (GPP)  is  a  process  whereby 
public  authorities  seek  to  procure  goods,  services  and 
works  with  a  reduced  environmental  impact  throughout 
their  life-cycle  when  compared  to  goods,  services  and 
works  with  the  same  primary  function  that  would 

101 See 2020 Milestone on phasing out EHS in the Roadmap to a 
Resource Efficient Europe (COM(2011) 571 final). 
102 OECD Companion to the Inventory of Support Measures for Fossil 
Fuels 2015  
103 European Environment Agency 2016, Environmental taxation and EU 
environmental policies, Table 4.3, p.24. 

Environmental Implementation Report – Portugal 

 
                                                            
                                                            
otherwise be procured.  

Investments: the contribution of EU funds  

Portugal  25 

The  purchasing  power  of  public  procurement  equals  to 
approximately  14%  of  GDP104.  A  substantial  part  of  this 
money  is  spent  on  sectors  with  high  environmental 
impact such as construction or transport, so GPP can help 
to  significantly  lower  the  impact  of  public  spending  and 
foster sustainable innovative businesses.The Commission 
has proposed EU GPP criteria105. 

In  Portugal  GPP  policy  has  been  institutionalised  since 
the introduction of the National Strategy for Green Public 
Procurement  2008-2010,  which  was  adopted  by  the 
Council of Ministers in 2007. 

A new national strategy for GPP (ENCPE 2020) has been 
approved by the Portuguese Government in July 2016106. 
This  strategy  defines  more  precisely  its  scope,  intending 
to have a broader and effective impact from the previous 
strategy, covering more acquisition procedures and thus 
potentiating its effect. 

GPP  criteria  will  be  progressively  developed  at  the 
national  level  on  the  basis  of  national  and  European 
studies on GPP criteria and products, taking into account 
Portugal’s  environmental  objectives  such  as  reducing 
greenhouse gas emissions. 

The environmental criteria for 21 priority product groups 
constitute the main tools for the purposes of meeting the 
objectives  of  the  strategy,  and  include  these  product 
groups:  office  buildings,  electricity,  imaging  equipment, 
electrical  and  electronic  equipment  used  in  the  health 
care  sector,  office  IT  equipment,  indoor  lighting,  street 
lighting  and  traffic  signals,  waste  water  infrastructure, 
road  design,  construction  and  maintenance,  furniture, 
wall  panels,  copying  and  graphic  paper,  combined  heat 
and  power  (CHP),  food  and  catering  services,  gardening 
products  and  services,  cleaning  products  and  services, 
water-based heaters, toilets and urinals, textiles, sanitary 
tapware and transport. 

the  National  System 

The 2020 National Strategy establishes targets applicable 
to 
for  Public  Procurement, 
concerning  most  of  the  public  bodies.  For  this  group  a 
target was set out, of integrating by 2020 environmental 
criteria 
in  60%  of  contracts  as  well  as  60%  of 
procurement value. In addition, the same targets are also 
established for the state owned companies, at a level of 
40%. 

104 European Commission, 2015. Public procurement 
105 In the Communication “Public procurement for a better 
environment” (COM (2008)400) the Commission recommended the 
creation of a process for setting common GPP criteria. The basic 
concept of GPP relies on having clear, verifiable, justifiable and 
ambitious environmental criteria for products and services, based on a 
life-cycle approach and scientific evidence base. 
106 Resolution of the Council of Ministers No. 38/2016 of 29 July. 

European  Structural  and  Investment  Funds  Regulations 
provide  that  Member  States  promote  environment  and 
funding  strategies  and 
climate  objectives 
programmes 
territorial 
cohesion,  rural  development  and  maritime  policy,  and 
reinforce the capacity of implementing bodies to deliver 
cost-effective and sustainable investments in these areas. 

in  their 
for  economic, 

social  and 

Making  good  use  of  the  European  Structural  and 
Investment  Funds  (ESIF)107  is  essential  to  achieve  the 
environmental goals and integrate these into other policy 
areas.  Other  instruments  such  as  the  Horizon  2020,  the 
LIFE  programme  and  the  EFSI108  may  also  support 
implementation and spread of best practice. 

Portugal  is  traditionally  an  important  beneficiary  of  the 
EU Cohesion Policy. 

Current data suggest that the EU funds for the 2007-2013 
period were almost fully spent109. 

For the 2014-2020 programming period Portugal will also 
receive  an  important  contribution  from  the  5  ESI  Funds 
(see Figure 12, current prices): 

 
 
 
 
 

From the ERDF: EUR 10 773 million. 
From the Cohesion Fund: EUR 2 862 million. 
From the ESF: EUR 7 546 million. 
From the EARDF: EUR 4 058 million. 
From the EMFF: EUR 392 million. 

The  support  of  the  EU 
funding  has  significantly 
contributed  to  improve  the  implementation  of  the  EU 
environmental law and policy and Portugal. 

The  environmental  investments  have  a  similar  weight 
within 
the  current 
programming period compared to the previous one. 

the  EU  Cohesion  Policy 

in 

There 
is  a  national  OP  dedicated  to  environment: 
"Sustainability  and  Efficiency  in  the  Use  of  Resources" 
to  EUR  2.6  billion110  and 
(POSEUR),  amounting 
concentrating  environmental  investments  through  the 
Cohesion Fund in Portugal. This OP aims to anticipate and 
adapt to the global changes in the field of energy, climate 
change  and  more  efficient  use  of  resources  along  a 
links  competitiveness  to 
dynamic  perspective  that 
sustainability, 
in  accordance  with  the  Europe  2020 
strategy. 

107 ESIF comprises five funds – the European Regional Development 
Funds (ERDF), the Cohesion Fund (CF), the European Social Fund (ESF), 
the European Agricultural Fund for Rural Development (EAFRD), and 
the European Maritime and Fisheries Fund (EMFF). The ERDF, the CF 
and the ESF together form the Cohesion Policy funds. 
108 European Investment Bank, 2016 European Fund for Strategic 
Investments 
109 Final data for the period 2007-2013 will only be available at the end 
of 2017. 
110 Including the national co-financing part. 

Environmental Implementation Report – Portugal 

 
 
                                                            
                                                            
Figure  12:  European  Structural  and  Investment  Funds 
2014-2020: Budget Portugal by theme, EUR billion111 

Portugal  26 

The two thematic environmental ex ante conditionalities 
(EAC) on Water and Waste were only partially fulfilled by 
Portugal  at  the  moment  of  adoption  of  the  Partnership 
Agreement  2014-2020  and  therefore  Action  Plans  were 
agreed  with  the  Portuguese  authorities  in  order  to 
comply with all the criteria by end-2016112. 

The general environmental EAC on EIA/SEA (looking into 
the  legal  framework  and  the  effective  arrangements  to 
comply with the environmental impact assessment rules) 
was considered as fulfilled by Portugal. 

Portugal  should  take  advantage  of  the  ESIF  available  for 
the  programming  period  2014-2020  in  order to  improve 
the  compliance  with  the  EU  environmental  law  and 
policy,  as  well  as  to  use  the  potential  of  the  green 
economy for competitiveness and job creation. 

It is too early to draw conclusions as regards the use and 
results of ESIF for the period 2014-2020, as the relevant 
programmes  are  still 
in  an  early  stage  of  their 
implementation. 

are 

also 

two  other  national  OPs  on 
There 
"Competitiveness  and 
Internationalisation"  and  on 
"Technical  Assistance".  Moreover,  there  are  seven 
regional  OPs,  which  in  this  period  are  multi-funding, 
covering  both  ERDF  and  ESF,  where  environmental 
actions are also envisaged. 

Moreover, it should be highlighted the various territorial 
cooperation  ERDF  OPs  (transnational  and  cross-border 
cooperation) with the participation of Portugal where the 
environmental investments have a considerable weight. 

In terms of environmental sectors, the main priorities in 
Portugal  for  ERDF  2014-2020  are:  water  (EUR  628 
million), adaptation to climate change (EUR 415 million), 
waste  (EUR  313  million),  and  rehabilitation  of  industrial 
sites and contaminated land (EUR 152 million). 

The  environmental  integration  has  been  ensured  in  the 
Partnership  Agreement  2014-2020  and  the  different 
Operational  Programmes  for  the  five  ESIF  through  the 
application  of  the  Strategic  Environmental  Assessment 
(SEA) Directive and by other means. 

and 

With regard to the integration of environmental concerns 
into  the  Common  Agricultural  Policy  (CAP),  the  two  key 
areas are, first, using Rural Development funds to pay for 
environmental 
other 
land  management 
financing 
environmental  measures,  while  avoiding 
measures  which  could  damage  the  environment;  and 
second,  to,  ensuring  an  effective  implementation  of  the 
first pillar of the CAP with regard to cross compliance and 
1st  pillar  'greening'.  30  %  of  direct  payment  envelope  is 
for  the 
allocated  to  greening  practices  beneficial 
environment. 
ambitious 
implementation  of 1st  pillar greening  would  clearly  help 
to  improve  the  environmental  situation  in  areas  not 
covered by rural development, including intensive area. 

environmentally 

An 

largely  on 

For  the  Rural  Development  Programme  of  Mainland 
Portugal,  the  total  EAFRD  budget  is  some  EUR  3584 
million,  with  around  11.7%  of  budget  allocated  to  the 
agri-environment-climate  measure,  much  less  than  for 
the  less  environmentally  focused  Natural  Constraints 
measure  (20%).  Natura  2000  land  areas  management 
intensive 
relies 
management either in agriculture, grazing or forestry, the 
comprehensive  application  of  sound,  effective  and 
targeted  support  to  specific  farming  and  forestry 
practices  is  required  and  there  is  a  potential  risk  to 
nature and biodiversity from afforestation, and from the 
large  budgetary  allocation 
investments. 
Therefore this programme could be much better targeted 
on the environment. 

traditional  and 

farm 

low 

for 

For  the  Rural  Development  Programme  of  Madeira,  the 
total EAFRD budget is EUR 180 million of which only 4.8% 
is  allocated  to  the  agri-environment-climate  measure. 
Very  low  uptake  for  this  measure  on  small  farms  was  a 

111 European Commission, European Structural and Investment Funds 
Data By Country 

112 The EAC Waste has already been fulfilled by Portugal. 

Environmental Implementation Report – Portugal 

 
 
                                                            
                                                            
Portugal  27 

problem  from  the  past  which  does  not  appear  to  have 
been overcome; and problems with pesticides appear to 
remain.  Afforestation  using  non-native  species  may  be 
also a cause for environmental concern. 

As  to  the  Rural  Development  Program  of  Azores,  its 
EARDF  part,  amounts  to  around  EUR  295  million,  out  of 
which  agri-environmental-climate  measures  represent 
19.6%.  Though  having  a  higher  proportion  in  the  EARDF 
than  for  the  rest  of  Portugal,  the  problems  of  invasive 
species are still of concern with prevalence of large areas 
of invasive flora in Natura 2000 areas putting pressure in 
their  conservation  objectives  to  achieve  the  favourable 
conservation  status  of  protected  species  and  habitats. 
Yet, the support under the main forestry measure aims at 
supporting  well  established  industries  of  Cryptomeria 
and  Eucalyptus  species  and  other  non-native  species 
(Sequioadendron,  Sequoia  etc).  Contribution  of  RDP 
towards  environmental  objectives  is  non-targeted,  non-
ambitious,  very 
limited  and  does  not  follow  the 
intervention  logic  based  on  threats  and  weaknesses  in 
environmental  sphere.  The  forestry  measure  might 
represent, based on its implementation, environmentally 
harmful investments. 

Portugal also benefits from the EU LIFE Programme, with 
numerous  and  interesting  projects.  It  should  be  noted 
that  Portugal  has  currently  a  LIFE  capacity  building 
project  aiming  to 
improve  the  overall  Portuguese 
capacity for participation and use of the LIFE Programme, 
by increasing the number and quality of projects that are 
yearly presented to the Calls for Proposals. 

Environmental Implementation Report – Portugal 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
5. Effective governance and knowledge 

Portugal  28 

SDG  16  aims  at  providing  access  to  justice  and  building 
effective,  accountable  and  inclusive  institutions  at  all 
levels. SDG 17 aims at better implementation, improving 
policy  coordination  and  policy  coherence,  stimulating 
science, 
innovation,  establishing 
partnerships and developing measurements of progress. 

technology 

and 

Effective governance of EU environmental legislation and 
policies  requires  having  an  appropriate 
institutional 
framework,  policy  coherence  and  coordination,  applying 
legal  and  non-legal  instruments,  engaging  with  non-
governmental  stakeholders,  and  having  adequate  levels 
of  knowledge  and  skills113.  Successful  implementation 
depends, to a large extent, on central, regional and local 
government  fulfilling  key  legislative  and  administrative 
tasks,  notably  adoption  of 
implementing 
legislation,  co-ordinated  action  to  meet  environmental 
objectives  correct  decision-making  on  matters  such  as 
industrial  permits.  Beyond  fulfilment  of  these  tasks, 
government  must 
to  ensure  day-to-day 
compliance  by  economic  operators,  utilities  and 
individuals  ("compliance  assurance").  Civil  society  also 
has  a  role  to  play,  including  through  legal  action.  To 
underpin the roles of all actors, it is crucial to collect and 
share  knowledge  and  evidence  on  the  state  of  the 
environment  and  on  environmental  pressures,  drivers 
and impacts. 

intervene 

sound 

Equally,  effective  governance  of  EU  environmental 
legislation  and  policies  benefits  from  a  dialogue  within 
Member  States  and  between  Member  States  and  the 
Commission  on  whether  the  current  EU  environmental 
legislation  is  fit  for  purpose.  Legislation  can  only  be 
properly 
into  account 
experiences  at  Member  State  level  with  putting  EU 
commitments  into  effect.  The  Make  it  Work  initiative,  a 
Member  State  driven  project,  established 
in  2014, 
organizes a discussion on how the clarity, coherence and 
legislation  can  be 
structure  of  EU  environmental 
improved without lowering existing protection standards. 

implemented  when 

it  takes 

Capacity to implement rules 

is 

that 

crucial 

regional  and 

It 
local 
central, 
administrations  have  the  necessary  capacities  and  skills 
and training to carry out their own tasks and co-operate 
and  co-ordinate  effectively  with  each  other,  within  a 
system of multi-level governance. 

The  2013  European  Quality  of  Government  Index  puts 
Portugal in 16th place out of the 28 Member States.114 

Environmental  policy  developments 
in  Portugal  are 
mainly  driven by EU Directives and Regulations,  and the 
relevant  EU  rules  are  generally  transposed  in  time.  The 
number  of  complaints  and 
the 
environmental field can be considered in the EU average.  

infringements 

in 

the 

regarding 

Overall,  during  the  last  decade  an  improvement  in  the 
implementation of EU environmental law in the different 
sectors  can  be  observed.  For  instance,  there  has  been 
progress 
the 
environmental  assessments.  However  a  recent  package 
of legislation aimed at speeding-up the licencing of the so 
called  projects  of  national  interest  needs  to  be  tested, 
mainly  because  it  provides  very  tight  deadlines  for  the 
carrying out of the assessment and the possibility of tacit 
approval of some procedural acts. 

implementation  of 

Effective  governance  within  central,  regional 
and local government 

Those  involved  in  implementing  environment  legislation 
at  Union,  national,  regional  and  local  levels  need  to  be 
equipped  with  the  knowledge,  tools  and  capacity  to 
improve  the  delivery  of  benefits  from  that  legislation, 
and the governance of the enforcement process. 

Coordination and integration 

The  Portuguese  Government  adopted  in  April  2015  the 
"Green Growth Commitment" (GGC). This strategy has its 
origin  in  the  "Coalition  for  Green  Growth"  launched  in 
February  2014.  With  a  broad  social  support,  the  GGC 
encompasses the entire scope of components pertaining 
to  green  growth 
sectors),  underpinned  by 
quantitative targets for 2020 and 2030, and an extensive 
range of measures (111 measures). 

(16 

113 The Commission has work ongoing to improve the country-specific 
knowledge about quality and functioning of the administrative systems 
of Member States. 

114 Charron N., 2013. European Quality of Government Index (EQI) 

Environmental Implementation Report – Portugal 

 
 
                                                            
 
                                                            
The GGC initiated the discussion on the need to achieve a 
new national development model, aiming to comply with 
three major objectives by 2020: 1) to position Portugal as 
a  global  benchmark  for  green  growth;  2)  to  promote  a 
low-carbon  economy,  highly  efficient  in  resource  use; 
and  3)  to  produce  more  wealth  and  jobs  by  investing  in 
sustainability of industries and territories. 

The  GGC  brings  stakeholders  together  in  encouraging  a 
transition  to  a  more  resource  efficient  and  low-carbon 
economy. It is now essential to implement the numerous 
measures it includes115. 

(industry, 

agriculture  & 

An  evolution  of  the  GGC  was  recently  undertaken, 
bringing  stakeholders  to  focus  on  the  core  of  green 
growth:  the  Circular  Economy.  In  this  context,  a  new 
orientation  was  issued  to  the  Coalition,  to  work  on  5 
sectors 
forestry,  built 
environment,  transport  and  procurement)  and  on  5 
strategies  (dematerialization,  eco-design  and  lifecycle 
extension, 
and 
recovery/recycling). Stakeholders were called to interact 
to 
and 
demonstrate  the  advantages  and  barriers  in  pursuing 
these 
initiatives.  Coalition  members  welcomed  this 
approach and the first results are expected by end-2017. 

collaborative 

efficiency, 

symbiosis 

intended 

resource 

projects, 

build 

Regarding the implementation of EU environmental law, 
the  competences  are  shared  between  the  national 
administration 
local 
the 
and 
insular  regions  of  Azores  and 
administrations.  The 
Madeira have a special autonomy also in this field. 

regional 

and 

The 

Impact  assessments  are 
important  tools  to  ensure 
environmental  integration  in  all  government  policies116. 
In the last years, Portugal has taken various measures to 
streamline  the  EIA  process.  The  transposition  of  the 
revised  EIA  Directive117  will  be  also  an  opportunity  to 
streamline  the  regulatory  framework  on  environmental 
the 
Commission 
assessments. 
streamlining  of  the  environmental  assessments  to  avoid 
overlaps  in  environmental  assessments  and  accelerate 
decision-making,  without  compromising  the  quality  of 
The 
the 
Commission  has  issued  a  guidance  document  in  2016118 
regarding  the  setting  up  of  coordinated  and/or  joint 
procedures 
to 
assessments  under  the  EIA  Directive,  Habitats  Directive, 
Water Framework Directive, and the Industrial Emissions 

simultaneously 

environmental 

encourages 

assessment 

procedure. 

that  are 

subject 

115 European Semester 2016 Portugal Country Report, p. 58. 
116 Article 11 of the TFEU provides that "Environmental protection 
requirements must be integrated into the definition and 
implementation of the Union's policies and activities, in particular with 
a view to promoting sustainable development." 
117 The transposition of Directive 2014/52/EU is due in May 2017. 
118 European Commission, 2016. Commission notice — Commission 
guidance document on streamlining environmental assessments 
conducted under Article 2(3) of the Environmental Impact Assessment 
Directive (Directive 2011/92/EU of the European Parliament and of the 
Council, as amended by Directive 2014/52/EU). 

Portugal  29 

Directive. 

Portugal  has  recently  created  the  Single  Environment 
Permit (SEP) scheme119, which covers all main permits on 
the  environment  domain.  The  SEP  aims  to  integrate, 
harmonise  and  simplify  processes  and  procedures  in 
order to facilitate their interpretation and application by 
interested  parties  and  the  administration  itself,  thus 
helping  to  minimise  the  impact  of  the  dispersion  of 
legislation and also to reduce bureaucracy related costs. 
It is also aims to strengthen cooperation between various 
bodies  and  services  of  the  public  administration  which 
are  legally  competent  in  environmental  matters.  In  any 
case,  this  new  scheme  must  ensure  high  standards  of 
environmental protection. 

Suggested action 

  The  experience  obtained  on  the  definition  and 
implementation  of  the  mitigation  and  compensation 
measures  regarding  the  dam  projects  should  be 
extended  to  other 
likely  to  have 
significant  impacts  on  the  Natura  2000  network.  The 
composition  of 
for  these 
projects  should  be  as  broad  as  possible  and  include 
representative NGOs. 

follow-up  commissions 

infrastructure 

  Effectively 

initiatives 

in  order  to 

implementing  and  making  use  of  the 
recently  created 
improve 
efficiency, effectiveness and coordination of the public 
sector in the environmental domain, namely improving 
information  sharing  and  documentation  exchange 
between  public  entities  that  are  responsible  for 
inspection  and  monitoring  in  the  areas  of  Agriculture, 
Sea and Environment, with an operational platform. 

Compliance assurance 

EU  law  generally  and  specific  provisions  on  inspections, 
other  checks,  penalties  and  environmental  liability  help 
lay  the  basis  for  the  systems  Member  States  need  to 
have 
secure  compliance  with  EU 
to 
environmental rules. 

in  place 

Public  authorities  help  ensure  accountability  of  duty-
holders by monitoring and promoting compliance and by 
taking credible follow-up action (i.e. enforcement) when 
breaches occur or liabilities arise. Compliance monitoring 
can  be  done  both  on  the 
initiative  of  authorities 
themselves  and  in  response to  citizen complaints. It  can 
involve  using  various  kinds  of  checks, 
including 
inspections  for  permitted  activities,  surveillance  for 
possible  illegal  activities,  investigations  for  crimes  and 
audits for systemic weaknesses. Similarly, there is a range 
of  means  to  promote  compliance,  including  awareness-
raising  campaigns  and  use  of  guidance  documents  and 

119 Decree-Law 75/2015 

Environmental Implementation Report – Portugal 

 
                                                            
                                                            
liability 

include  administrative  action 

online  information  tools.  Follow-up  to  breaches  and 
liabilities  can 
(e.g. 
withdrawal of a permit), use of criminal law120 and action 
law  (e.g.  required  remediation  after 
under 
liability  rules)  and 
damage  from  an  accident  using 
contractual  law  (e.g.  measures  to  require  compliance 
with  nature  conservation  contracts).  Taken  together,  all 
of these interventions represent "compliance assurance" 
as shown in Figure 13. 

Figure 13: Environmental compliance assurance 

Best  practice  has  moved  towards  a  risk-based  approach 
at strategic and operational levels in which the best mix 
of compliance monitoring, promotion and enforcement is 
directed at the most serious problems. Best practice also 
recognises  the  need  for  coordination  and  cooperation 
between  different  authorities  to  ensure  consistency, 
avoid  duplication  of  work  and  reduce  administrative 
burden. Active participation in established pan-European 
networks  of  inspectors,  police,  prosecutors  and  judges, 
such as IMPEL121, EUFJE122, ENPE123 and EnviCrimeNet124, 
is  a  valuable  tool  for  sharing  experience  and  good 
practices. 

Currently, there exist a number of sectoral obligations on 
inspections  and  the  EU  directive  on  environmental 
liability  (ELD)  125  provides  a  means  of  ensuring  that  the 
"polluter-pays  principle" 
is  applied  when  there  are 
accidents  and  incidents  that  harm  the  environment. 
There 
information  giving 
insights  into  existing  strengths  and  weaknesses  in  each 
Member State.  

is  also  publically  available 

For  each  Member  State,  the  following  were  therefore 
reviewed:  use  of  risk-based  compliance  assurance; 
coordination  and  co-operation  between  authorities  and 
participation in pan-European networks; and key aspects 

120 European Union, Environmental Crime Directive 2008/99/EC 
121 European Union Network for the Implementation and Enforcement 
of Environmental Law 
122 European Union Forum of judges for the environment  
123 The European Network of Prosecutors for the Environment  
124 EnviCrimeNet  
125 European Union, Environmental Liability Directive 2004/35/CE 

Portugal  30 

of implementation of the ELD based on the Commission's 
recently  published  implementation  report  and  REFIT 
evaluation126. 

IMPEL 

inspections.  The 

last  decade,  Portugal  has 

Over  the 
improved  the 
effectiveness of environmental compliance assurance, in 
particular 
implementation  of  the 
Portugal's  administrative  simplification  programme  has 
led  to  a  greater  use  of  risk-based  approaches  and  more 
systematic  data  collection127.  The 
IRAM  risk 
is  widely  used128.  Some 
assessment  methodology 
compliance  promotion  campaigns  have  been  organized. 
The General Inspection for Agriculture, Sea, Environment 
(IGAMAOT)129  established  a 
and  Spatial  Planning 
database  on  regulated 
installations  and 
relevant  inspection  activities  that  include  also  other 
sectors  that  have  to  comply  with  environmental 
obligations  such  as  animal  farms  (intensive  livestock), 
infrastructures  and  constructions,  hospitals,  waste 
management  sites  and 
transportation,  wastewater 
treatment  plants,  agriculture130  and  uses  a  geographic 
for  analyzing,  planning  and 
information 
prioritizing 
for 
performance  evaluation  which  uses  not  only  input  and 
output  indicators  but  also  some  outcome  indicators 
related to state of the environment parameters132. 

system 
inspections131.  There 

is  a  system 

industrial 

Some reports have shown that there are shortcomings in 
relation to: 
  data-collection  arrangements  to  track  the  use  and 
effectiveness  of  different  compliance  assurance 
interventions  outside 
industrial 
installations; 
the extent to which risk-based methods are used to 

the  area  of 

 

126 COM(2016)204 final and COM(2016)121 final of 14.4.2016. This 
highlighted the need for better evidence on how the directive is used 
in practice; for tools to support its implementation, such as guidance, 
training and ELD registers; and for financial security to be available in 
case events or incidents generate remediation costs. 
127 OECD Environmental Performance Report Portugal 2011, p. 64.  
128 Portugal indicated that risk assessment is applied in sectors such as 
wastewater treatment plants (taking into account water quality), 
Seveso and IPPC installations (taking into account its location in or 
nearby sensitive areas, which includes nature protected sites) and that 
IGAMAOT is currently expanding its use to other areas such as trans-
boundary shipments of wastes. 
129 Together with the Service for Nature and Environmental Protection 
(SEPNA) which is part of the Internal Administration Ministry, 
IGAMAOT is the main authority in charge of assuring compliance with 
environmental obligations.  
130 This database (GESTIGAOT) includes inter alia inspections reports 
which are available for internal consultation but in general not to the 
wider public. A compilation of the main findings of inspections to 
sectors are available on the Annual Activity reports but also specific 
reports, available to the public at 
https://www.igamaot.gov.pt/relatorios/. IGAMAOT transferred this 
information to a new database named SGI. According to the type of 
installations the inspection reports are sent to public authorities that 
have competences on assuring compliance with environmental 
obligations or its permitting..  
131 IMPEL IRI Portugal, p. 33. 
132 IMPEL IRI Portugal, p. 31. 

Environmental Implementation Report – Portugal 

 
 
                                                            
                                                            
direct  compliance  assurance  at  the  strategic  level 
and 
in  relation  to  critical  activities  outside  of 
industrial  installations133,  in  particular  in  specific 
problem-areas highlighted elsewhere in this Country 
Report,  i.e.  the  threats  to  protected  habitat  types 
and  species,  poor  air  quality  and  the  pressures  on 
water  quality  from  diffuse  and  point  sources  of 
pollution; 

  how  the  Portuguese  authorities  ensure  a  targeted 
and  proportionate  response  to  different  types  of 
non-compliant  behaviour,  given  evidence  of  the 
limited effectiveness of sanctions134. 

To remediate the above-mentioned gaps, the IGAMEOT is 
putting in place different measures, like a new data-base, 
new units and various publications. 

Portugal  is  active  within  IMPEL  and  has  undergone  an 
IMPEL peer review. 

Although 
the  added  value  of  cooperation  and 
coordination  with  other  authorities  with  relevant 
functions  is  recognized  and  some  formal  cooperation 
agreements are in place, there is a perception of need for 
inspections  and  for 
more  systematic  use  of 
joint 
measures  to  ensure  effective 
inter-action  between 
environmental  inspectors  and  prosecutors135.  In  this 
context,  Portuguese  authorities  namely  the  Portuguese 
Environment  Agency, 
of  Nature 
the 
Conservation  and  Forests,  the  IGAMAOT,  the  Secretary-
the  Public 
General  of  the  Environment  Ministry, 
Prosecutor’s  Office, 
the  Regional  Direction  of 
Environment and Spatial Planning of the Madeira and the 
Regional Inspection for Environment of the Azores, have 
created  a  Portuguese  IMPEL  Network,  with  the  aim  to 
contribute  to  the  improvement  of  implementation  of 
environmental law. 

Institute 

For  the  period  2007-2013,  Portugal  reported  two 
confirmed  cases  of  environmental  damage  dealt  with 
under  the  Environmental  Liability  Directive,  and  several 
cases  where  preventive  measures  were  applied.  It  has 
established  several  support  mechanisms, 
including 
guidance,  a  consultative  council  and  a  standing 
committee.  It  is  actively  promoting  the  Directive  via 
awareness-raising  and 
for 
stakeholders  and  training  for  competent  authorities  (it 
participates  extensively  in  the  Commission's  training 

information  campaigns 

133 Portugal's progress on risk-based compliance assurance focuses 
primarily on industrial inspections; risk assessment is not always 
aligned with strategic environmental objectives and does not cover all 
relevant environmental policy subject-areas, see IMPEL IRI Portugal, p. 
36 and 38. 
134 In terms of response to detected non-compliance, the focus is mainly 
on administrative procedures and sanctions in respect of which 
problems with collection of imposed fines and lack of sufficient 
resources has been observed see OECD Environmental Performance 
Report Portugal 2011, p. 66-67.   
135 OECD Environmental Performance Report Portugal 2011, p. 65 and 
IMPEL IRI Portugal, p. 37.  

Portugal  31 

programme  for  the  Directive).  Portugal  has  established 
mandatory financial security and the country reports that 
the Directive contributes to operators being more aware 
of environmental risks and of the importance of reducing 
them. 

Suggested action 

  Improve 

transparency  on 

the  organisation  and 
functioning  of  compliance  assurance  and  on  how 
significant risks are addressed. 

  Encourage 
authorities 
EnviCrimeNet. 

greater  participation  of 
competent 
in  the  activities  of  ENPE,  EUFJE  and 

Public participation and access to justice 

The  Aarhus  Convention,  related  EU  legislation  on  public 
participation and environmental impact assessment, and 
the case-law of the Court of Justice require that citizens 
and  their  associations  should  be  able  to  participate  in 
decision-making  on  projects  and  plans  and  should  enjoy 
effective environmental access to justice. 

Citizens  can  more  effectively  protect  the  environment  if 
they can rely on the three "pillars" of the Convention on 
Access  to  Information,  Public  Participation  in  Decision-
making  and  Access  to  Justice  in  Environmental  Matters 
("the  Aarhus  Convention").  Public  participation  in  the 
administrative  decision  making  process  is  an  important 
element to ensure that the authority takes its decision on 
the  best  possible  basis.  The  Commission  intends  to 
examine compliance with mandatory public participation 
requirements more systematically at a later stage. 

Access  to  justice  in  environmental  matters  is  a  set  of 
guarantees  that  allows  citizens  and  their  associations  to 
challenge  acts  or  omissions  of  the  public  administration 
for  decentralised 
It 
before  a  court. 
implementation of EU environmental law. 

is  a 

tool 

For  each  Member  State,  two  crucial  elements  for 
effective  access  to  justice  have  been  systematically 
reviewed:  the  legal  standing  for  the  public,  including 
NGOs and the extent to which prohibitive costs represent 
a barrier. 

Portugal grants the public, notably individuals and NGOs, 
a very broad access to justice in environmental cases. The 
costs  for  bringing  a  case  to  a  court  are  also  not 
prohibitively  high.  This  guarantees  that  members  of  the 
public are provided with good conditions for asking for a 
judicial  review  in  environmental  matters.  However,  the 
court  procedures, 
in 
Portugal are rather long136. 

including  environmental  cases 

136 See Study on access to justice in environmental matters  2012/2013 

Environmental Implementation Report – Portugal 

 
                                                            
                                                            
Portugal  32 

Access 
evidence 

to 

information,  knowledge  and 

The  Aarhus  Convention  and  related  EU  legislation  on 
access  to  information  and  the  sharing  of  spatial  data 
require that the public has access to clear information on 
the environment, including on how Union environmental 
law is being implemented. 

authorities 

public 
the  public, 

and 
increasingly 

It is of crucial importance to public authorities, the public 
and business that environmental information is shared in 
an  efficient  and  effective  way.  This  covers  reporting  by 
and 
active 
businesses 
dissemination 
through 
to 
electronic means. 
The  Aarhus  Convention137,  the  Access  to  Environmental 
Information  Directive138  and  the  INSPIRE  Directive139 
together  create  a  legal  foundation  for  the  sharing  of 
environmental  information  between  public  authorities 
and with the public. They also represent the green part of 
the  ongoing  EU  e-Government  Action  Plan140.  The  first 
two 
to  provide 
information  to  the  public,  both  on  request  and  actively. 
The  INSPIRE  Directive  is  a  pioneering  instrument  for 
electronic  data-sharing  between  public  authorities  who 
can  vary  in  their  data-sharing  policies,  e.g.  on  whether 
access to data is for free. The INSPIRE Directive sets up a 
geoportal which indicates the level of shared spatial data 
in  each  Member  State  –  i.e.  data  related  to  specific 
locations,  such  as  air  quality  monitoring  data.  Amongst 
other  benefits 
it  facilitates  the  public  authorities' 
reporting obligations. 

create  obligations 

instruments 

accessibility  of 
State, 
For  each  Member 
environmental data (based on what the INSPIRE Directive 
envisages)  as  well  as  data-sharing  policies  ('open  data') 
have been systematically reviewed.  

the 

Portugal's  performance  on  the  implementation  of  the 
INSPIRE  Directive  as  enabling  framework  to  actively 
disseminate  environmental  information  to  the  public 
leaves  room  for  improvement.  Portugal  has  indicated  in 
the  3-yearly  INSPIRE  implementation  report141  that  the 
necessary  data-sharing  policies  allowing  access  and  use 
of  spatial  data  by  national  administrations,  other 
institutions 
Member  States'  administrations  and  EU 
without  procedural  obstacles  are  available  but  not  fully 
implemented.  Portugal  has  no  common  data-sharing 

137 UNECE, 1998. Convention on Access to Information, Public 
Participation in Decision-Making and Access to Justice in 
Environmental Matters 
138 European Union, Directive 2003/4/EC on public access to 
environmental information 
139 European Union, INSPIRE Directive 2007/2/EC  
140 European Union, EU eGovernment Action Plan 2016-2020 - 
Accelerating the digital transformation of government COM(2016) 179 
final 
141 European Commission, INSPIRE reports 

in  many  public  administrations 

policy and several licenses are being used to regulate the 
access and use to spatial information. In many cases fees 
are applied. Portugal has expressed the ambition to work 
on  a  simplified  data-sharing  policy  promoting  the  free 
access to and use of public sector spatial data. The need 
for  recoverability  of  investments  in  data  acquisition  and 
management 
is  the 
biggest bottleneck to address on the way to open data.  
Assessments  of  monitoring  reports142  issued  by  Portugal 
and  the  spatial  information  that  Portugal  has  published 
on  the  INSPIRE  geoportal143  indicate  that  not  all  spatial 
information 
and 
for 
implementation of EU environmental law has been made 
available  or  is  accessible.  The  larger  part  of  this  missing 
spatial  information  consists  of  the  environmental  data 
required  to  be  made  available  under  the  existing 
EU 
reporting 
environmental law. 

and  monitoring 

regulations 

evaluation 

needed 

the 

of 

Moreover,  the  new  Single  Environment  Permit  (SEP) 
scheme  could  help  to  strengthen  the  transparency  and 
responsibility  of  business  owners  and  other  intervening 
the 
bodies  by  organising  and 
environmental 
an 
information 
establishment or activity. 

standardising  all 
to 

applicable 

Suggested action 

  Critically  review  the  effectiveness  of  its  data  policies 
into 
taking 

'best  practices' 

them, 

and  amend 
consideration.  

  Identify and document all spatial data sets required for 
the  implementation  of  environmental  law,  and  make 
the  data  and  documentation  at  least  accessible  'as  is' 
to  other  public  authorities  and  the  public  through  the 
digital services foreseen in the INSPIRE Directive. 

142 Inspire indicator trends  
143 Inspire Resources Summary Report 

Environmental Implementation Report – Portugal