Study on the impact of the COVID-19 pandemic on the outermost regions : outermost region fiche Azores.
Date: 2022-01-12
Institutions: Directorate-General for Regional and Urban Policy
Subjects: Azores, community resilience, coronavirus disease, economic consequence, economic recovery, organisation of health care, peripheral region, social impact, statistics, tourism

FR

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EUROPEAN COMMISSION 

Directorate-General for Regional and Urban Policy 
Directorate A — Budget, Communication and General Affairs 
Unit A1 - Outermost Regions 

Contact: Directorate General for Regional and Urban Policy, unit A1 - Outermost Regions  

E-mail:  REGIO-A1-RUP@ec.europa.eu  

European Commission 
B-1049 Brussels 

 
 
EUROPEAN COMMISSION 

Study on the impact of the COVID-
19 pandemic on the outermost 
regions (OR) 

Outermost Region Fiche Azores 

2022 

EN 

Directorate-General for Regional and Urban Policy 

 
Manuscript completed in December 2021 

1st edition 

The European Commission is not liable for any consequence stemming from the reuse of this publication.  

Luxembourg: Publications Office of the European Union, 2022 

© European Union, 2022 

For any use or reproduction of elements that are not owned by the European Union, permission may need to 
be sought directly from the respective rightholders. The European Union does not own the copyright in relation 
to the following elements: 

PDF 

ISBN 978-92-76-46553-9  doi: 10.2776/026366 

KN-09-22-011-EN-N 

 
 
 
 
 
 
 
 
Legal  Notice:  This  document  has  been  prepared  for  the  European  Commission. 

However,  the  content  of  this  publication  does  not  reflect  the  official  opinion  of  the 

European Commission. Responsibility for the information and views expressed in the 

publication lies entirely with the authors. 

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INTRODUCTION 

This  fiche  was  prepared  as  part  of  a broader  study  assessing the  impact  of  COVID-19  on the  nine  EU  outermost 

regions  (ORs).  It  provides  an  in-depth  analysis  of  the  economic  and  social  impacts  of  COVID-19  in  the  Azores, 

highlights the measures taken to halt the spread of the virus, and puts forward proposals for recovery and resilience-

building measures addressing the major issues identified in this region.  

This fiche first presents an overview of the health-related impacts of the pandemic in the Autonomous Region of the 

Azores (Região Autónoma dos Açores), as well as the timeline of measures put in place to keep infection rates in 

check. It then examines the economic repercussions, starting at the macroeconomic level, followed by an analysis of 

the main sectoral impacts. The third section presents the social impacts and is followed by an identification of the most 

relevant policy measures implemented in the region to mitigate the negative consequences of the crisis. The last two 

sections look at the future prospects and suggest measures to support the recovery and to build resilience to similar 

challenges in the future. 

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4 

GDP/capita Economic activity variationNumber of jobseekersUnemployment rateTo be added laterShare of key sectors within Household with broadbandYoung people neither in employment the economy - Share of GDP (2019)access - 2020nor in education and training - 2020compared to the Portuguese average of 82%compared to the Portuguese average of 9.1%RecommendationsImproving the business environment and public administration efficiency through digitalisationPromoting the Azores as an attractive location for remote working and long-term staysDeveloping the regional eco-tourism offerSupporting the Azores dairy sector to better fulfil its potentialDiversifying the Azores fishery sector in a sustainable fashion17.2%Overview and impact of COVID on the economy of the AzoresImpact of the COVID-19 crisis on specific sectors of the economy84%LowModerateHighTourismLowModerateHighRetailLowModerateHighTransportLowModerateHighAgricultureLowModerateHighConstruction12.8Azores6.112.6Portugal6.9201520162017201820192020Unemployment rate (%)51%26%9%8%4%ServicesRetailAgricultureIndustryConstruction19,10019,70020,00020,90021,90021,30021,90022,70023,70024,70020152016201720182019AzoresPortugal7,6856,9517,0566,497Jan 19Mar 19May 19Jul 19Sep 19Nov 19Jan 20Mar 20May 20Jul 20Sep 20Nov 20Jan 21Mar 21May 21Jul 211.9-7.3Azores-2.711.3-8.6Portugal-1.212 
 
 
1. COVID-19 PANDEMIC IN THE REGION – HEALTHCARE STATISTICS AND TIMELINE 

In  terms  of  health-related  statistics, the  Azores were  proportionally less  affected  by  COVID-19 compared  to 

mainland Portugal. The three ‘waves’ of the pandemic took place in conjunction with the occurrences of the waves 

on the mainland, with the third wave being the most significant. The health situation varied between the different 

islands. In particular, the larger islands of São Miguel and Terceira were impacted more significantly. 

Figure 1: Cumulative number of cases over total population, in 
percentages, Feb 2020 – Aug 2021) 

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According  to  the  Portuguese  Directorate 

General  of  Health,  8,541  infections  and 

41  deaths  have  been  registered  in  the 

Azores  since  March  2020  (based  on  data 

from 31 August 2021). 

According  to  Portugal’s  general  health 

service,  by  31  August  2021,  72%  of  the 

region’s  population  was  fully  vaccinated. 

This  percentage  is  slightly  lower  than  for 

the  mainland,  with  73%  of  its  population 

fully vaccinated at this time. 

In  terms  of  the  COVID-19  restrictions, 

Source: Ecorys based on Data from Directorate General Health Portugal 

although 

the  Portuguese  government 

determined  a  set  of  broadly  applicable 

guidelines to be followed (as part of the state of emergency) across different mainland Portuguese regions, the 

Azores (along with Madeira) have autonomous status, and therefore its regional government was able to take its 

own decisions on pandemic response actions. These restrictions entered into force shortly after the emergence of 

the virus in the region, on 11 March 2020 (Figure 2). The restrictions were not as severe as those in mainland 

Portugal and many other EU Member States, and some limited economic sectors beyond those deemed to be 

essential (e.g. construction) and outdoor physical activity  were permitted, with some specific limiting conditions. 

The restrictions also enabled the Regional Health Service Hospitals to increase their stocks of medicines, medical 

devices and personal protective equipment by up to 20% (on 17 April 2020) as well as to increase their test capacity 

by certifying and adding more labs to the recognised testing network. 

The first easing of restrictions took place from 30 April 2020 (shortly after the mainland), but different measures 

were  adopted  across the  nine major  islands  which make  up  the  Azores  due  to  differing  COVID-19  conditions. 

Across  all  islands, the  opening  up  of  infrastructure and commercial  establishments  was  authorised  on  22 May 

2020. Industries and service provisions were also opened three days later. As a result of rising case numbers, new 

COVID-19 restriction measures came into force on 28 October 2020. Nevertheless, by 15 December 2020, most 

of the restriction measures were once again lifted, though some protocols associated with the state of emergency 

were  maintained,  particularly  in  the  use  of  masks,  restrictions  on  non-essential  movement,  and  adherence  to 

COVID-19 protocols (e.g. wearing masks and encouraging the use of hand sanitiser). On 11 February 2021, the 

third round of restrictions was put into place. The situation during the third wave was significantly more difficult in 

health terms as compared to the first and second waves. 

Due to the relative remoteness of the Azores, their insularity, and high dependence on air and sea transport, the 

main challenge was to contain the virus as far as possible in order to prevent excessive pressure on the healthcare 

system.  In  this  regard,  the  Azorean  regional  government  had  announced  that  they  were  available  to  receive 

patients from the continent. However, ultimately, no patients were transferred or received. Two other lockdowns 

were put in place in March and April 2021. Restrictions started to be gradually lifted in May 2021. Since 25 June, 

passengers have been able to travel to the region provided they have the EU COVID-19 vaccination or recovery 

certificate, or a negative RT-PCR test. 

5 

 
 
 
 
 
 
 
 
 
 
 
Figure 2: Timeline of the health/social distancing measure and healthcare milestones and new COVID-19 cases 
reported in the Azores 

First round of restrictions

Lifting of first restrictions

308

Third round of restrictions

221

Number of new cases

Second round of 
restrictions

157

Lifting of third round of 
restrictions

Introduction of the EU 
COVID Certificate for 
travellers

Restart of air traffic

Lifting of restrictions

First COVID case detected

40

3

15 Mar
2020

17 Mar
2020

29
May
2020

6

15 Jun
2020

Source: Ecorys based on INE data 

Launch of vaccination 
campaign

Fourth round of restrictions

40

16

6

07 Nov
2020

31 Dec
2020

30 Jan
2021

12 Feb
2021

31 Mar
2021

30 Apr
2021

31

35

01 Jul
2021

As  mentioned  above,  a  key  measure  to  prevent  the  healthcare  system  from  being  overwhelmed  was  the 

introduction  of  limitations  on  movement  between  neighbourhoods  on  the  island  of  São  Miguel,  in  the  cities  of 

Nordeste and Ribeira Grande. Additionally, in December 2020, flights from the UK and Brazil were banned from 

entering  Portugal  (until  31  March  2021).  Furthermore,  the  relatively  successful  containment  of  the  COVID-19 

pandemic reflects the capacity of the Azorean government and institutions to plan for, respond to and manage 

crises (e.g. volcanoes, earthquakes, storms/hurricanes, aviation and maritime accidents). Previous such examples 

of natural ‘shocks’ have included the Tania and Lorenzo destructive storms and the 1998 Faial earthquake. Thus, 

the regional government has been able to leverage its previous experience. It can be observed that the region 

strengthened  its  resilience  to  health  shocks,  based  on  the  fact  that  medical  infrastructure  on  the  island  has 

improved over time. Eurostat data show that the number of hospital beds per 100,000 inhabitants decreased by 

1%  between  2010  and  2019,  although  this  is  still  substantially  higher  than  the  EU  and  Portuguese  average. 

Furthermore, there has been a significant increase (66%) in the number of doctors per 100,000 inhabitants, rising 

from  214  to  355  between  2010  and  2019,  though  this  is  still  notably  lower  than  both  the  EU  and  Portuguese 

averages. 

Figure 3: Number of medical doctors and hospital beds (per hundred thousand inhabitants) 

574

346

214

613

389

337

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Doctors per 100 000 pop - EU27
Doctors per 100 000 pop - Portugal
Doctors per 100 000 pop - Azores

Source: Ecorys based on Eurostat data 

611

532

532

391

355

351

7
1
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2

6
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Hospital beds per 100 000 pop - EU27
Hospital beds per 100 000 pop - Portugal
Hospital beds per 100 000 pop - Azores

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2. ECONOMIC IMPACT OF THE COVID-19 PANDEMIC 
MACROECONOMIC OVERVIEW 

The economy of the Azores faced several significant challenges prior to the COVID-19 pandemic. According to 

PORDATA (Database of Contemporary Portuguese Data), GDP per capita was 88% that of mainland Portugal in 

2019 (Figure 4). However, the economy of the island has been on a positive and consistent growth trajectory, with 

gradual growth between 2015 and 2019, largely driven by the expansion of low-cost flights to the islands, fuelling 

tourist activity. 

Figure 4: GDP per capita (€), 2015-2019 
Source: Ecorys based on PORDATA data 

21,300

21,900

22,700

19,100

19,700

20,000

20,900

GDP/capita

23,700

21,900

Although  the  containment  of  COVID-19 

infections  was  largely  successful  in  the 

24,700

Azores,  the  regional  economy  took  a 

significant hit following the first round of 

restriction  measures  in  March  2020. 

Whilst  official  2020  GDP  figures  or 

estimates are pending, economic activity 

indicator  data  prepared  by  SREA 

(Regional Statistics Service Azores) and 

INE  (National  Statistics  Institute)  show 

that  from  April  to  June  2020,  economic 

2015

2016

2017

2018

2019

activity (as compared to the same month 

Source: Ecorys based on Eurostat data 

Azores

Portugal

in  the  previous  year)  decreased  by  a 

more significant percentage each month 

(Figure  5).  Furthermore,  following  the 

relaxation  of  COVID-19  restrictions,  the 

index declined more moderately from August to November 2020, reaching a -2.7% rate in November 2020 (i.e. 

compared to 2019). This indicates a relatively healthy recovery in economic activity over the summer and autumn, 

making up for some of the lost ground in the first half of the year. However, in December 2020, this positive trend 

came to a halt with a slight drop of 0.2% compared to November. 2021 has been comparatively positive for the 

region,  although  the  economic  performance  of  the  Azores  is  clearly  below  that  of  the  national  average.  While 

mainland Portuguese economic activity contracted more severely than in the Azores in March and April 2020, it 

also improved more rapidly. Figure 5 evidences a more U-shaped recovery for the region, compared to the faster 

V-shaped trend in mainland Portugal for 2020. It also shows the clear difference in performance between the region 

and the national average for 2021, with the Azores lagging behind in terms of economic activity during this year. 

Figure 5: Economic activity variation in 2020-2021 (%)* 

15

10

5

1.9

0

1.3

-5

-10

-8.6

-7.3

Portugal

12

1

-1.2
-2.7

Azores

Jan 20 Feb 20 Mar 20 Apr 20 May 20 Jun 20 Jul 20 Aug 20 Sep 20 Oct 20 Nov 20 Dec 20 Jan 21 Feb 21 Mar 21 Apr 21 May 21 Jun 21

Source: Ecorys based on SREA and INE Data 

* Data shown are as compared to the same month in the previous calendar year 

7 

 
 
 
 
 
 
 
In addition to the impact on economic activity, the crisis has led to increased local public spending and a loss of 

immediate tax revenue. In terms of tax revenue, according to SREA, 2020 saw a 3.8% fall as compared to 2019, 

given that there was a 7.7% increase in direct taxes but a fall of 8.8% in indirect taxes.  

In Q2 2020, in the early stages of the pandemic, imports to the Azores increased by 33% compared to Q2 in 2019, 

probably due to sanitary equipment imports. Later on, both import and export volumes contracted as a result of 

COVID-19, with the former being impacted more significantly. In Q3 2020, imports were 11.1% lower than in the 

same period in 2019. This negative trend continued in Q4 2020, when they were 14.6% lower than during the same 

time in the preceding year. This was mainly due to decreased demand as a result of the restrictions, and supply 

chain disruption that increased freight costs.  

Figure 6: Imports, € million (2019 Q1 – Q1 2021) 

45

34

Imports
€ million

27

However, the data for Q1 2021 shows a positive trend, 

as 

imports  returned 

to 

their  pre-pandemic 

level, 

40

surpassing the Q1 2019 figure by 3.7%. Azorean primary 

28

sectors  and  derived 

industries 

rely  mainly  on 

endogenous resources; secondary (manufacturing) and 

tertiary  (services)  sectors  depend  more  heavily  on 

2019
Q1

2019
Q2

2019
Q3

2019
Q4

2020
Q1

2020
Q2

2020
Q3

2020
Q4

2021
Q1

Source: Ecorys based on INE data 

imports.  In  this  regard,  given  that  the  Azores  are  an 

archipelago made up of nine island markets of different 

sizes, the region is heavily dependent on imports overall.  

As  concerns  exports,  in Q2  2020,  exports  decreased 

Figure 7: Exports, € million (2019 Q1 – Q1 2021) 

by 17% as compared to Q2 2019. In Q3 2020, exports 

recovered  to  some  extent  and  were  4%  lower  than 

during the same period the previous year. However, in 

Q4  2020,  exports  were  11%  lower  than  during  Q4 

2019. This is partly because the costs of export goods 

(via shipping and freight transport) increased because 

Exports
€ million

of  supply  chain  disruption  and  international  travelling 

restrictions;  hence,  it  became  more  difficult  for  local 

companies  to  cover  those  expenses.  A  decrease  in 

27

29

28

26

28

25

2019
Q1

2019
Q2

2019
Q3

2019
Q4

2020
Q1

2020
Q2

2020
Q3

2020
Q4

2021
Q1

foreign  demand  for  Azorean  goods  was  probably  the 

Source: Ecorys based on INE data 

cause. Nevertheless, the figure increased slightly in Q1 

2021 in comparison with the same period in 2019. It must, however, be noted that the import and export variations 

are rather minor compared to other outermost regions and can, to an extent, be attributed to seasonality.  

The adverse effects of the pandemic in critical sectors of the Azores economy are not reflected in the number of 

enterprises dissolved. Evidence from INE shows that the number of dissolved enterprises remained stable from 

2019 to 2020. The sector that contributed the most to this decrease is commerce. This can be mostly explained 

by the fact that there have been significant support measures allowing such enterprises to keep existing, even with 

none or reduced economic activity.  

However, there was a 31% decline in the number of new Azorean enterprises created between 2019 and 2020, 

driven  by  a  significant  reduction  in  the  number  of  new  services,  commerce  and  industry  enterprises.  This  is 

particularly reflected in small-scale activities, which are less inclined to take risks in a very unfavourable economic 

context. Similarly to other outermost regions, the number of companies created heavily outnumbers those which 

8 

 
 
 
 
 
 
 
 
 
were dissolved. There is no real difference in the latter as compared to 2019, which could be partly attributable to 

policy measures introduced to support the local economy. 

Table 1: Number of new and dissolved enterprises 

2019 

2020 

Agricult

Commer

Industry 

Services 

Total 

Agricult

Commer

Industry 

Services 

Total 

ure 

24 

ce 

78 

83 

319 

504 

ure 

24 

ce 

56 

57 

247 

384 

New 

companies 

Dissolved 

4 

52 

21 

86 

163 

6 

44 

20 

92 

162 

companies 

Source: Ecorys based on INE 

SECTORAL ANALYSIS 

Based on data from INE, it is clear that retail, tourism, agriculture and construction all play a significant role in the 

Azores, although to a differing extent in each of its nine islands. In 2019, commerce (which includes wholesale and 

retail, transport, accommodation and food services) accounted for 26.1% of GDP, followed by real estate (13.1%) 

and  agriculture  (8.5%).  No  specific  sectoral  data  is  available  for  tourism.  However,  trends  in  tourism  can  be 

considered to be jointly included under commerce (wholesale and retail, transportation, accommodation and food 

services)  and  services  (arts  and  entertainment  activities),  with  the  former  providing  a  more  significant 

representation of the tourism sector.  

Official statistics which concretely describe the impact of COVID-19 on individual sectors are not yet available for 

2020, but alternative indicators (as proxies for sectoral performance) suggest that the sectors most affected by the 

COVID-19  pandemic  are  tourism,  commerce, transport  and agriculture.  This  is  likely  due to the  fact that these 

sectors are characterised by physical proximity and mobility (except agriculture) and have therefore suffered more 

severely from restrictions. 

An  important  factor  to  consider  is  that  non-commercial  services  (e.g.  public  administration,  education,  human 

health and social work), which account for the largest sector in the Azores (29.3% of GDP), have not been impacted 

negatively by the pandemic. This has helped to cushion the overall impact of the pandemic on regional GDP. 

Table 2: Economic structure of the Azores 

Areas 

Sectors 

Agriculture 

Agriculture, farming of animals, hunting and forestry 

Industry 

Mining and quarrying; manufacturing; electricity, gas, steam and cold 
air; water collection, treatment and distribution; sewerage, waste 
management and remediation activities 

Construction 

Commerce 

Wholesale and retail trade; repair of motor vehicles and motorcycles; 
transportation and storage; accommodation and food service activities 

Services 

Information and communication activities 
Financial and insurance activities 
Real estate activities 
Consultancy, scientific and technical activities; administrative and 
support service activities 

Public administration and defence; compulsory social security; 
education; human health and social work activities 

Arts and entertainment activities; repair of household goods and other 
services 

Total 

Source: Ecorys based on INE 

GDP (2019) 
€ (million) 
326.91 

282.09 

156.39 

1,008.07 

61.23 
89.83 
506.77 

164.22 

% 
8.5 

7.3 

4.0 

26.1 

1.6 
2.3 
13.1 

4.2 

1,131.37 

29.3 

138.60 

3,865.51 

3.6 

100 

9 

 
 
 
 
 
 
 
 
 
 
 
Commerce  

Commerce is the second-largest sector in the Azores (26.1% of GDP), and includes wholesale and retail trade, 

the repair of motor vehicles and motorcycles, transportation and storage, and accommodation and food service 

activities.  

Consumers have a general tendency to buy in larger shops, which puts smaller retail businesses at a disadvantage 

and  makes  the  sector  in  general  more  vulnerable  to  external  shocks.  The  general  trends  in  consumption  and 

globalisation affecting retail throughout the world also apply in the Azores. Bigger chain retail stores are also better 

able to offer online sales, which can widen the gap with smaller traditional retail merchants. 

The Google Mobility Index for retail and recreation - which reflects mobility trends for places like restaurants, cafes, 

shopping centres, theme parks, museums, libraries, and movie  theatres) was 22% lower between 1 November 

and 13 December 2020 than the baseline (the baseline day is the median value from the five-week period from 3 

January to 6 February 2020). Furthermore, the Google Mobility Index for grocery and pharmacy (mobility trends 

for  places  like  grocery  markets,  food  warehouses,  farmers  markets,  speciality  food  shops,  drug  stores,  and 

pharmacies) increased by 2% compared to the baseline from 1 November to 13 December 2020.  

Figure 8: Purchases by bank cards and cash withdrawals (€ 
millions), 2019-2021 

115.1

Credit card 
transactio
n

111.7

51.3

ATM 
withdrawal

58.1

49.6

29.2

Source: Ecorys based on INE 

According to INE, in April 2020, there was a 

34%  decrease  in  the value of  purchases  via 

points  of  sale  and  a  35%  decrease  in  ATM 

withdrawals compared to the same month in 

2019. Between October and December 2020, 

as compared to the previous year, there was 

an 

increase  of  2.3-4.9% 

in  credit  card 

transactions.  By  December  2020,  purchases 

by bank cards in the Azores, using third party 

agent registrations, reached a total of €111.7 

million,  a  year-on-year  increase  of  3.43%, 

while withdrawals in cash showed a year-on-

year  decrease  of  5.65%,  as  people 

increasingly  opted  for  card  payments  over 

cash, given the increased risks of COVID-19 
infection.  

10 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Tourism  

Figure 9: Number of guests in tourist accommodation 

110,106

Number of 
guests in 
tourist 
accomoda
tion

40,091

37,491

145

20,980

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Source: Ecorys based on SREA data 

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The tourism sector is a central part of the economy 

of  the  Azores.  The  main  type  of  tourism  in  the 

Azores  is  related  to  nature  and  to  the  region’s 

natural  assets.  There  has  been  an  increase  in 

67,066

tourism  entertainment  companies,  making  active 

tourism increasingly relevant.  

Although no overall sectoral data are available on 

tourism, 

in  a  resolution 

from 

the  Regional 

Legislative  Assembly  in  February  2021,  it  was 

estimated  that  the  gross  value  added  generated 

by tourism was 12% in 2017; equivalent to 17.2% 

of the regional GDP. Cruise shipping is particularly 

important to the sector. As a result of the COVID-19 travel restrictions, the Azores saw a severe drop in tourist 

activity. SREA data show that, as compared to the same months of the previous year, both April and May 2020 

saw a 99% drop in guests staying in tourist establishments.  

These trends did, however, improve from June on a monthly basis up until October 2020. Nevertheless, in  October 

2020, the region still had 57% fewer guests staying in tourist accommodation compared to 2019. The situation 

further deteriorated after November 2020, although a tentative recovery resumed in March 2021. 

Overall,  when  compared  to  2019,  there  were  69%  fewer  guests  in  tourist  establishments  and  a  75%  drop  in 

collective  income  from these establishments  in  2020.  Furthermore, the  cruise  economy  shut  down  after March 

2020, with only three ships registered in March 2020. After March 2020, these ships were restricted from docking 

in the Azores. There was also a 63% reduction in the value of transactions carried out using foreign credit cards 

in 2020 when compared to the previous year.  

Figure 10: Income from tourist accommodation (€ 
thousand) 

Figure 11: Value of foreign card transactions in 
Azores, 2020 

15492

9426

15.7%

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

-43.3%

2269

4513

7

938

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2

n
a
J

0
2

r
a
M

0
2

y
a
M

0
2

l

u
J

0
2

p
e
S

0
2

v
o
N

1
2

n
a
J

1
2

r
a
M

1
2

l

u
J

1
2

y
a
M

-81.3%

Total value of 
purchases  with 
foreign credit cards

Source: Ecorys, based on SREA data 

Source: Ecorys, based on SREA data 

Transport  

In a similar manner to the impact of mobility-restricting measures on the flow of tourists, the transport sector has 

also been affected, including both air and sea transport. Given the spatial isolation of the region, both the air and 

maritime transport sector are essential for the local economy. In sum, according to the contribution of the regional 

11 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
government of the Azores to the public consultation on the 8th report on economic, social and territorial cohesion, 
the sector shrunk by 32% from 2019 to 2020. 

Figure 12: Number of airline passengers disembarking in 
the Azores, 2019-2021 

250000

200000

150000

100000

50000

0

Source: Ecorys based on SREA 

2021

2019

2020

In terms of air transport, which mainly concerns 

passenger 

transportation, 

the  number  of 

disembarked air passengers (March to November 

2020) suffered a drop of 71% (SREA data) when 

compared 

to 

the  same  period 

in  2019. 

In 

December 2020, 62% fewer passengers landed in 

Azorean airports compared to the same month of 

the  previous  year. The  numbers  for  2021 remain 

below the pre-pandemic values (Figure 12).  

Figure 13: Port traffic in terms of number of vessels 

Figure 14: Port traffic in terms of gross tonnage 

30.1%

% change 
in 2020 
with 
respect 
2019

-7.8%

-14.6%

-17.3%

-24.1%

53.3%

12.5%

7.4%

% change 
in 2020 
with 
respect 
2019

-30.6%

-23.5%

-40.7%

-37.0%

-38.5%

-40.5%

-41.4%

-59.5%

-55.4%

-43.8%

-59.8%

-62.9%

-59.1%

-75.1%

Jan Feb Mar Apr May Jun Jul Aug Sep Nov Dec

Jan Feb Mar Apr May Jun Jul Aug Sep Nov Dec

Source: Ecorys based on INE 

Source: Ecorys based on INE 

The restrictions also had a significant impact on port traffic, although it took a number of months for this impact 

to become fully apparent. According to INE data, there was a 14% decrease in the number of commercial vessels 

and a 40% decrease in the gross tonnage of the vessels in March 2020, compared to the same month the year 

before. The situation deteriorated further over the following months, but a positive trend  resumed as of August 

2020. By December 2020, the number of vessels in port was in fact 1% higher than the previous year. However, 

the trend has been less consistent in terms of the gross tonnage, as demonstrated in Figure 14.  

Construction  

The  available  evidence  indicates  that  the  construction  sector,  which  plays  a  moderate  role  in  the  regional 

economy (generating 4% of GDP), has not been substantially impacted by COVID-19. According to the contribution 

of the regional government  of  the  Azores  to the  public  consultation on the 8th  report  on  economic, social  and 

territorial cohesion, the sector grew by 2% from 2019 to 2020. Unlike in other sectors, there was no sudden halt in 

construction activities due to COVID-19 restrictions in 2020. Indeed, it recorded a 4% increase in the number of 

construction projects compared to 2019. Furthermore, data for early 2021 evidences a very positive trend, with the 

number of licensed projects being significantly higher than in the two previous years.  According to SREA data, 

cement sales remained relatively stable over the lockdown periods, and increased during the second part of 2020. 

It is clear that cement sales have significantly increased in 2021. This resilience is largely due to long lead-in times 

12 

 
 
 
 
 
 
 
 
in the sector and thus the relative stability of workflow in the industry, guaranteeing some continuity even during 

times of crisis. Based on the data available for 2021, the Azorean construction sector is stable and growing. 

Figure 15: Number of licensed constructions and 
demolitions 

Figure 16: Sales of cement in thousands of tonnes 
(2020-2021) 

120

100

80

60

40

20

0

2021

2019

2020

16.6

13.1

12.6

14.136

13.6

12.416

9.9

9.0

8.9

10.1

9.4

10.6 10.5

12

11.1

10.5

14.4

2020

2021

12.2

10.5

Source: Ecorys based on INE 

Source: Ecorys based on SREA 

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Agriculture and fisheries  

Agriculture (including agriculture, hunting and forestry) continues to play an important role in the economy of the 

Azores,  accounting for  8.5% of GDP  in  2019  with  a value  of  €327  million.  This  is  in  contrast  with  the  2.05%  it 

accounted for at the national level. This sector has been significantly hit by the pandemic, seeing a -9% contraction 

from 2019 to 2020 (as noted by the regional government of the Azores in the public consultation for the 8th report 

on economic, social and territorial cohesion).  

The pandemic has had a significant impact on many agricultural sectors, namely floriculture, fresh beef and goat 

cheese production and horticulture. However, overall, meat production was only negatively impacted in February 

and April 2020, when the volumes produced were 18% and 11% below the yearly average, respectively. In May 

2020 this increased again, and meat production has been stable since (based on available data). 

The fisheries sector also saw its situation deteriorate due to a decrease in demand as a result of the pandemic. 

Although the total catch increased in March-July 2020 (compared to the same months in 2019), the monetary value 

of the catch significantly dropped. This was particularly true in April and in May (namely due to the fact that tourists 

were no longer demanding/consuming fish). Over the remaining months of 2020, the value of fish caught remained 

similar to that in 2019, although the figures in the last month of 2020 showed a further decrease. Given that the 

available data for 2021 (catch weight and value) are more similar to those in 2019, it can be inferred that the sector 

may be gradually resuming pre-pandemic levels of productivity and revenue generation. These fluctuations may 

partially be explained by the ebbs and flows of tourist arrivals over the year, and a likely change in the consumption 

patterns of residents, increasingly oriented towards the Azores market.  

13 

 
 
 
 
 
 
 
 
 
 
 
Figure 17: Weight of fish caught, tonnes

Figure 18: Value of fish caught, EUR thousands.  

2,000

1,800

1,600

1,400

1,200

1,000

800

600

400

200

0

2021

5,000

4,500

4,000

3,500

3,000

2,500

2,000

1,500

1,000

500

0

2019

2020

2021

2019

2020

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Source: Ecorys based on SREA 

Source: Ecorys based on SREA 

3. SOCIAL IMPACT OF THE COVID-19 CRISIS 

The support measures implemented by the regional and national authorities in the Azores prevented an immediate 

collapse in employment and, therefore, helped to mitigate the social impact of COVID-19. In common with other 

outermost regions, the Azores  has faced a number of long-term social challenges that the pandemic served to 

exacerbate, putting increased pressure on social support systems, namely: 

•  General under-qualification  and skills  of the  population -  according to  Statistics  Portugal, the  proportion  of 

residents with higher education aged between 25 and 64 years was 26.3% in Portugal, while it was 13.8% in the 

Azores  in  2019.  The  region  also  has  a  higher  rate  of  early leavers from  education  and training  than  mainland 

Portugal. In 2020, 27% of residents aged 18-24 years had not completed secondary education; nearly three times 

higher than the national average (8.9%). 

• 

•  Excessive economic concentration - there is a concentration of jobs in a limited number of sectors, some of 

which are vulnerable to changes in external demand – such as tourism - or rely on low-skilled workers (fishing and 

agriculture). These structural labour market characteristics can increase the risk of social disruption in times of 

economic stress. 

• 

•  High relative poverty rates - The Azorean population at risk of poverty or social exclusion is significantly higher 

(36.7%) than in Portugal (21.6%, 2019 figures). 

The evolution of employment since late 2019 (Table 3) shows some improvement. However, in some age groups, 

there has been a reduction in the number of registered workers; namely in those younger than 25 years and older 

than 55. 

Table 3: Variation of registered employment by age groups  

Age group 

Period 

Variation 

December 

November 

December 

November 2020 – 

December 2019 – 

2019 

2020 

2020 

December 2020 

December 2020 

No. 

% 

No. 

% 

No. 

% 

< 25 

1,078 

15.4 

1,213 

17.4 

1,153 

16.5 

25 – 34 

1,697 

24.3 

1,845 

26.5 

1,894 

27.1 

No. 

-60 

49 

% 

-4.9 

2.7 

No. 

75 

197 

% 

7.0 

11.6 

14 

 
 
 
 
 
 
 
 
 
35 - 54 

3,193 

45.7 

2,984 

42.9 

3,055 

43.7 

≥ 55 

Total 

1,014 

14.5 

920 

13.2 

886 

12.7 

6,982 

100 

6,962 

100 

6,988 

100 

71 

-34 

26 

2.4 

-3.7 

0.4 

-138 

-128 

6 

-4.3 

-12.6 

0.1 

Source: Ecorys based on IEFP 

This  can  raise  some  issues,  as  individuals  in  these  age  groups  traditionally  have  greater  difficulties  finding 

employment. On the one hand, there are the challenges of youth unemployment. On the other, individuals aged 

55 or older tend to face greater difficulty in finding employment (partly due to lack of qualifications), which in turn 

may lead to long-term unemployment. 

According to Eurostat, 17.2% of young people (aged 15-24) are not in employment, education or training (NEET); 

almost  double the  national  rate  of  9.1%, for the  year 2020. The  Azores registered  a  youth  unemployment  rate 

similar to Portugal's in 2020; 22.1% and 22.6% respectively. 

Figure 19: Registered jobseekers, 2019-2021 

7685

7136

6951

6942

7056

The  available  evidence  indicates  that  the  Azorean 

labour market has coped with the COVID-19 pandemic 

better than the rest of the country. For years, the region 

consistently  had  a  higher  unemployment  rate  than 

6497

mainland Portugal. Nevertheless, since the onset of the 

9
1

n
a
J

9
1

r
a
M

9
1

y
a
M

9
1

l

u
J

9
1

p
e
S

9
1

v
o
N

0
2

n
a
J

0
2

r
a
M

0
2

y
a
M

0
2

l

u
J

0
2

p
e
S

0
2

v
o
N

1
2

n
a
J

1
2

r
a
M

1
2

l

u
J

1
2

y
a
M

Source: Ecorys, based on IEFP data 

pandemic,  the  regional  labour  market  has  not  only 

performed  better  when  compared  to  the  rest  of  the 

country,  but  has  slightly  improved.  During  2020,  the 

unemployment rate in the Azores was lower than  that 
in  Portugal (6.1%  compared  to  6.9%)1.  However,  this 
could be partially ascribed to an increase in the inactive 

workforce, i.e. individuals who stopped searching for a 

job and thus were not recorded as being registered jobseekers. This is possible for several reasons, including low 
FP data 

expectations of being hired. A breakdown by gender shows that the employment rate is lower for females than 

males (61% compared to 48.5% in Q1 2021). Furthermore, female employment has been decreasing since mid-

2020 and continues to do so in 2021. 

According to Eurostat data, the long-term unemployment rate in the Azores decreased by 53% between 2015 and 
2019. In 2019 the long-unemployment rate was 4.1%, around 30% higher than EU27 and Portuguese averages2.  

The number of jobseekers dropped significantly in 2019, before the pandemic, evidencing a slow but consistent 

improvement (Figure 19). However, following the emergence of the first COVID-19 cases in 2020, the number of 

jobseekers levelled out before declining again in March 2021 (resuming its pre-pandemic trend). 

Of the  6,202  individuals  registered  as  seeking a job  in  January  2021  and  subsequently  employed,  4,594  were 

employed  in  the  services  sector  (more  precisely,  1,021  in  accommodation,  restaurants  and  similar  services) 

implying  that  this  sector  has  already started to recover.  Job  offers  also  decreased  from  2,203  (2019)  to  1,564 

(2020), a reduction of nearly 30%, suggesting that the economy may be in a transition phase whereby the need 

for workers at the present time remains subdued. However, job offers significantly increased since March 2021, 

evidencing a tentative return to 2019 levels, although this could be  partly ascribed to the seasonal effect of the 

summer. Many jobs in the Azores  are seasonal, with greater activity during the summer months, mainly due to 

tourism. 

1 Eurostat (code: lfst_r_lfu3rt), Unemployment rates by sex, age, educational attainment level and NUTS 2 regions (%) 
2 Eurostat (code: [lfst_r_lfu2ltu]), Long-term unemployment (12 months and more) by sex, age, educational attainment level and 
NUTS 2 regions (%), Percentage of population in the labour force. No information available for 2020 for the Azores at the time of 
writing of this report. 

15 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Figure 20: Registered job offers, 2019-2021

256

183

185

215

122

73

113

102

9
1

n
a
J

9
1

r
a
M

9
1

y
a
M

9
1

l

u
J

9
1

p
e
S

9
1

v
o
N

0
2

n
a
J

0
2

r
a
M

0
2

y
a
M

0
2

l

u
J

0
2

p
e
S

0
2

v
o
N

1
2

n
a
J

1
2

r
a
M

1
2

y
a
M

Source: Ecorys, based on IEFP data 

The  extent  to  which  this  will  be  reflected  in 

terms  of  unemployment  is  not  yet  clear, 

because of the protective measures that are 

still in place and the fact that companies are 

not  allowed  to  make  workers  redundant  in 

order to qualify for government support. 

Other 

than 

the  social  consequences 

emerging  from  the  impact  of  the  COVID-19 

pandemic  on the economy,  there  were  also 

relevant effects resulting from changes in the 

way 

that  some  services  operate,  such 

as schools  and  public  administration.  This 

has  incentivised (or compelled)  some families to  provide  their  students  with  the tools  needed  to attend remote 

classes, such as computers or tablets. 

According  to  data  from  Statistics  Portugal, 

Figure 21: Household with broadband access to the internet (%) 

75.8% of Azorean households had at least one 

functioning  computer  (2017).  Access  to  the 

internet 

is  also  essential,  and  a  higher 

percentage of Azorean households have access 

to  broadband than those  in  mainland  Portugal. 

The  proportion  of  households  with  broadband 

access  has  been  steadily 

increasing,  and 

reached  83.6%  in  2020  (Figure  21).  Those 

lacking a computer in their household are more 

commonly  families  with  lower  incomes;  this 

Azores

Portugal

83.4

78

83.6

81.7

74.8

68.5

2015

2016

2017

2018

2019

2020

trend  can  aggravate  disparities  between  lower 

Source: Ecorys based on INE data 

and higher-income families.  

The dropout rate in secondary education in the Azores was 18.1% in 2019, while the national value was 13.1%. 

According to INE, these structural issues compound other vulnerabilities in the social domain,  such as poverty. 

The share of the population at risk of poverty or social exclusion is significantly higher in the Azores than in the 

mainland, reflecting a more precarious situation in the region compared to the national level. 

16 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
As  of  2018,  the  ‘at  risk  of  poverty’  rate  (after 

social transfers, which reflects the proportion of 

the  population  whose  equivalent  income,  after 

social  transfers,  is  below  the  poverty  line)  was 

also  higher  in  the  Azores  than  in  mainland 

Portugal 

(31.8% 

compared 

to 

17.2% 

respectively). This is related to the fact that the 

average net monthly wage in the Azores is lower. 

Statistics  Portugal  data  indicate  that  although 

there has been an improvement in the average 

monthly wage in 2021 compared to the previous 

year, the average of €905 is still 9% lower than 

the net mean wage in Portugal (€997 per month 

- Figure 22). It should also be noted that this value 

was the highest since 2011, reflecting progress in 

Figure 22: Average net monthly wage (€) 

828

775

887

790

997

905

1000

800

600

400

200

0

2015

2016

2017
Portugal

2018

2019
Azores

2020

2021

Source: Ecorys based on INE data 

the Azores in recent years, which may have been checked by the COVID-19 pandemic. 

Furthermore, in 2020, more than 60% of the employed population worked in areas with average monthly incomes 

lower than the regional average, contributing to the accentuation of internal and regional inequalities. 

On the other hand, in the Azores, in 2019, the proportion of residents receiving social integration income (monetary 

support  aimed  at  protecting  people  in  extreme  poverty,  in  return  for  a  social,  labour  and  community  insertion 

programme) were of 10.93%, whilst the equivalent percentage in Portugal was 3.10%. In some municipalities in 

the Azores, around 22% of registered residents received this support; seven times the national average, as in the 

case  of  Ribeira  Grande.  It  is  no  coincidence  that  COVID-19  spread  more  intensely  in  these  more  socially 

disadvantaged  communities,  driving  more  severe  virus  control  measures  such  as  restrictions  on  movement. 

Although  efficient  from  an  infection  control  point  of  view,  these  were  additional  obstacles  for  the  communities 

affected, which had already been facing more challenging social problems. 

4. POLICY RESPONSES TO TACKLE THE EFFECTS OF THE CRISIS 

OVERVIEW 

Following the outbreak of the COVID-19 pandemic, the government of Portugal and the regional authorities in the 
Azores  reacted  with  a  set  of  immediate  actions  to  halt  the  exponential  increase  in  infections  and  provide  the 

healthcare system with the necessary means to safeguard capacity to accommodate patient demands.  

One  of  the  first  responses  at  the  EU  level  was  the  amendment  of  the  cohesion  policy  programmes  through  the 
Coronavirus Response Investment Initiative (CRII) 3 and the Recovery Assistance for Cohesion and the Territories of 
Europe (REACT-EU) re-programming.  

The EU Recovery and Resilience Facility (RRF) is a key tool to support recovery. In this context, Portugal developed 

the Plano de Recuperação e Resiliência, the national Recovery and Resilience Plan 2021-2026 (RRP), which lays 
out 11 investments intended to guide recovery over the medium term.4 It is structured along three routes: resilience, 
climate transition, and digital transformation, and it includes specific actions and earmarked budget for the Azores.5 

3  CRII  amendments  of  the  cohesion  policy  programmes  included  two  concerning  the  regional  programming  for  the  Azores  in 
September 2020, and later in February 2021.  
4 Républica Portuguesa (2021), Plano  de Recuperação  e Resiliência.  Recuperar Portugal, Construindo  o futuro.  Link available 
here. 
5 Ibid. 

17 

 
 
 
 
 
 
While  this  plan  was  prepared  in  the  context  of  the  COVID-19  crisis,  it  is  also  an  instrument  for  structural 
transformation.  In June  2021 the  European  Commission  adopted  a  positive  assessment of the  Portuguese  plan,6 
indicating  its  intention  to  support  its  disbursement  of  €13.9  billion  in  grants  and  €2.7  billion  in  loans  through  the 
Recovery and Resilience Facility7 over the next five years. This was endorsed by the Council on 13 July 2021. 

Health sector measures 

The  Coronavirus  Response  Investment Initiative  (CRII facilitated  the reallocation  of  EU cohesion funds  within  the 

axes of the regional programme, to strengthen the response capacity of the Azorean regional health system, including 
in health infrastructure.8 In addition, the REACT-EU package mobilised over €23million under the European Regional 
Development Fund (ERDF)9 in support of the region’s healthcare sector.10 The regional government of the Azores 
implemented several measures to maintain or increase the responsiveness of the healthcare system. For instance, 

this included exceptions in the organisation of work by health professionals, both in terms of the place of work and 

the timetable practised, in order to more effectively combat the outbreak of COVID-19.  

Secondly, medicines, medical devices, and personal protective equipment have been resupplied, allowing for their 

purchase by all Regional Health Service Hospitals. This enabled the reinforcement of stocks by 20%, relative to their 

consumption in 2019. In addition to this, investments were made to increase testing capacity (by certifying and adding 

more labs to the recognised testing network), as well as budget reinforcements to public healthcare institutions, for a 

total amount of €15 million. 

All in all, the total COVID-19-related expenses incurred by the Regional Health Secretariat were €6.9 million between 

1  April  and  7  December  2020,  comprising  fiscal  transfers,  materials,  clinical  equipment,  overtime,  transportation, 

tests,  travel  and  stays,  communication,  computer  equipment,  software,  and  consultancy.  The  budget  for  2021 
anticipates a large increase in healthcare expenditure due to COVID-19.11 

In addition to the response of the regional government to the health crisis, the central government of Portugal has 

initiated the Subsídio por Doença por COVID-19 de Trabalhadores do Setor da Saúde, targeting health workers who 
are unable to work due to being ill with COVID-19, and providing an occupational disease benefit.12 In the long term, 
the  National  Recovery  and  Resilience  Plan  2021-2026  specifies  the  reform  of  the  governance  model  for  public 

hospitals, with the aim of ensuring greater efficiency in the management of resources, equipment, and processes, 
especially during times of crisis.13 This RRP also plans to introduce changes to primary healthcare and support mental 
health, following the implementation of a national strategy for dementia. Even though the healthcare system in the 

Azores  is regionally  operated,  it  can be  expected  that these measures  in the  national  healthcare  system  will  also 

positively impact the region.  

MEASURES IN SUPPORT OF THE ECONOMY 

Short-term response measures 
The REACT-EU package also mobilised €49.2 million under the European Regional Development Fund (ERDF)14 for 

the most affected SMEs in the region and for green transition The Coronavirus Response Investment Initiative (CRII) 

6 NextGenerationEU: European Commission endorses Portugal's €16.6 billion recovery and resilience plan. Link available here.  
7 The Recovery and Resilience Plan is the key EU instrument providing loans and grants to mitigate the impact of the pandemic 
and build more resilient economies and societies. More information available here.  
8 Data available at the Coronavirus Dashboard: EU Cohesion Policy Response to the Crisis 
9 This amount only reflects the 2021 allocation. The 2022 allocation, which would in principle add another € 5.4 million for health, 
is still to be approved.   
10 Latest figures provided by the European Commission. 
11 Governo dos Açores (2021), Consulta pública sobre o roteiro do 8.º relatório sobre a coesão económica, social e territorial 
reduzir as disparidades na UE 
12 Segurança Social website: http://www.seg-social.pt/subsidio-por-doenca-por-covid-19-de-trabalhadores-do-setor-da-saude 
13 Républica Portuguesa (2021), Plano de Recuperação e Resiliência. Recuperar Portugal, Construindo o futuro. Link available 
here 
14 This amount only reflects the 2021 allocation. The 2022 allocation is under approval.  

18 

 
 
  
 
 
 
 
 
 
also facilitated additional allocation of funding to enterprises in the Azores. The intervention fields with the largest 

increases  in  allocation  were those  of productive  investment in  SMEs,  of  adaptation  of  workers  and  enterprises to 

change, and of the development of tourism services for SMEs. 

The European Commission also provided support under the State Aid Temporary Framework. Apart from a few labour 

market measures (discussed later in this fiche), a €35 million grant scheme to support micro-enterprises in the Azores 

region called Apoiar.PT Açores was approved in February 2021 and received support from the European Regional 
Development Fund through both the Coronavirus Response Investment Initiative (CRII) and REACT-EU.15  

In March 2020, the Regional Government of the Azores initiated immediate liquidity support, aiming to uphold regional 

job retention by providing the liquidity needed by companies in order to meet workers' wage costs during April 2020. 
This was replicated in June 2020.16 The regional government also launched the Extraordinary Workers' Stabilisation 

Measure, providing financial support for Azores businesses in a state of economic crisis, with the purpose of financing 

wages and ensuring liquidity during the COVID-19 pandemic. This measure also provides vocational training plans 
in order to support the qualification of workers.17 

In April 2020, the medida extraordinária de complemento regional ao apoio extraordinário à manutenção de contrato 

de trabalho em situação de crise empresarial was initiated, to financially support companies in order to maintain jobs 
and avoid dismissals and unemployment. This measure was extended in January 2021.18 

The  regional  government  implemented  in  May  2020  the  Colocação  Extraordinária  de  Trabalhadores,  which  has 

provided financial support for the temporary replacement of workers who are unable to perform their duties, either 
because they are isolating following a suspected (or confirmed) COVID-19 diagnosis, or caring for children.19 

In July 2020, the regional government launched the incentivo regional à normalização da atividade empresarial, which 

is  a  financial  incentive  to  support  the  normalisation  of  business  activities  once  the  so-called  simplified  lay-off  or 
extraordinary training plan has been completed.20 

Alongside the general measures to support businesses in the Azores, several sector-specific support measures were 

launched over the course of 2020 by the regional government. Starting with the agriculture sector, there were several 
measures for specific sub-sectors, including flower growers,21 cheese makers,22 wine producers and bottlers,23 the 
marketing  of  certified table  wines,24  and  dairy farms.25  As mentioned  in  Section  2,  the  agriculture  sector  suffered 
economic  hardship,  and  these  financial  support  schemes  were  intended  to  cover  the  losses  from  the  closure  of 

markets, lower sales prices and/or increased costs of production. Since June 2020,  businesses in the agricultural 

sector  have  been  able  to  obtain  legal  clarification  certifying  their  inability  to  fulfil  contractual  obligations  and 
investments as a result of the COVID-19 pandemic, which could hence be legally recognised as force majeure.26 

As a result of the restrictions caused by the pandemic on air and maritime travel, the Azores saw a steep drop in 

tourist activity (see also Section 2). Therefore, since October 2020, the TURIS-FORM initiative has aimed to improve 

the qualifications of employees and employers within the tourism industry and other related industry sectors. This 

15 European Commission (2021), Coronavirus Outbreak - List of Member State Measures approved under Articles 107(2)b, 

107(3)b and 107(3)c TFEU and under the State Aid Temporary Framework. 

16 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/7b30b51e-ca29-42db-80f9-ceb11533ef46 
17 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/267df713-66a0-43a5-91f5-e4cb4a1aef59 
18 Governo dos Açores website, link available here. 
19 Governo dos Açores website, link available here. 
20 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/f35f5738-daa5-4106-b370-cfb3ebae6d5a 
21 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/518429c0-baf7-4ea7-98aa-cf4dbf865f45 
22 Governo dos Açores website: https://jo.azores.gov.pt/api/public/ato/f609bdf0-1c35-49cc-9c5c-8854adf31b4e/pdfOriginal 
23 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/f88dc117-2c77-46cd-b557-66772edc7372 
24 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/134b7e96-c992-41ff-a14b-5b613605c158 
25 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/68b5ab9c-16b3-401e-af15-a64dbbb06ea4 
26 Governo dos Açores website: https://jo.azores.gov.pt/api/public/ato/ef5e08d2-6b52-4f10-9f8a-dbb99b72e292/pdfOriginal 

19 

 
 
 
 
 
 
 
 
 
 
measure has three main elements: (i) financial support for the qualification of workers with the purpose of mitigating 

situations  of  business  crisis;  (ii)  promote  professional  (re)training  programmes  to  equip  individuals  with  the 

knowledge, skills and competencies required to improve firm competitiveness; and (iii) support for the preservation 
of employment levels and to reduce the risk of unemployment for businesses most affected by the pandemic.27 

The Regime Excecional de Apoio ao Rendimento dos Profissionais da Pesca na Sequência da Situação de Pandemia 

COVID-19  was  initiated  in  April  2020  by the regional  government,  to  provide financial support  to  Azorean  fishing 
activities, to ensure the necessary domestic production and livelihood of professionals in the fishing industry.28 Since 
January 2021, FUNDOPESCA has organised compensation for the loss of income incurred by shipowners and fishers 

depending  exclusively  on  fishing  activity,  entailing  the  activation  of  the  Wage  Compensation  Fund  for  Fishing 
Professionals from the Azores.29 

The media sector has also received an extraordinary support measure from the regional government, justified by its 

reduction  in  economic  activity  resulting  from  the  COVID-19  virus  pandemic,  with  the  consequent  decrease  in 
advertising revenue.30 

The  regional  government  has  exempted  or  suspended  a  range  of  fees  to  be  paid  by,  e.g.  users  of  the  auctions 
managed by LOTAÇOR,31 maritime tourism firms using the port,32 and businesses using the public airport domain.33 

Alongside the short-term actions implemented by the regional government, the central government of Portugal has 

set  up  several  measures  to  support  businesses  in  financial  distress  due  to  COVID-19.  The  ADAPTAR 
Microenterprises34  and  ADAPTAR  SMEs35  programmes  financially  support  micro-enterprises  and  SMEs  in  the 
process  of  adapting  their  business  models,  methods  of  organising  work  and  relationships  with  customers  and 

suppliers. Secondly, there is the VAT Refund for Event Organisers related to operational expenses for firms involved 
in the organisation of congresses, fairs, exhibitions, seminars, conferences and the like.36 Furthermore, subsidies are 
available to financially support self-employed workers who are unable to work and are in a state of financial distress 
caused by COVID-19 restrictive measures.37 Special measures have been established for self-employed individuals 
who fall outside the social security regime, but are registered with the tax authority.38 

Medium to long term support 

The national government of Portugal has set up the Linha de Apoio à Economia COVID-19: Empresas Exportadoras 

da Indústria e do Turismo, which provides short and medium-term bank loans to SMEs, small mid-cap and mid-cap 

companies in two sectors strongly affected by the pandemic: manufacturing and tourism. These loans from the Banco 

Português de Fomento are to be exclusively used for the financing of treasury needs and are aimed at supporting 
employment  and  job  maintenance.39  There  are  separate  though  similar  support  lines  for  event  organising 
companies40  and 
the  Tourism  Fund's 

for  micro-enterprises,  small-  and  mid-cap  companies.41  Finally, 

27 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/03ce3303-d752-4d5e-b5e6-78e9d47c1f4d 
28 Governo dos Açores website: https://jo.azores.gov.pt/api/public/ato/6fbaa2bd-c3da-44b5-a213-52557f0fe5d0/pdfOriginal 
29 Governo dos Açores website: https://portal.azores.gov.pt/web/comunicacao/news-detail?id=2581709 
30 Governo dos Açores website: https://covid19.azores.gov.pt/?page_id=2616 
31 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/b9ca7936-a29e-45cb-a0e7-5a2b2bc54372 
32 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/a4037348-2f98-4887-b569-05c808c3d39e 
33 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/be5dd79e-0699-4b4a-bc8b-02062d306c39 
34 Turismo de Portugal website: http://business.turismodeportugal.pt/pt/Investir/Financiamento/avisos-concursos/Paginas/adaptar-

microempresas.aspx 

35 Turismo de Portugal website: http://business.turismodeportugal.pt/pt/Investir/Financiamento/avisos-

concursos/Paginas/adaptar-pme.aspx 

36 Turismo de Portugal website: http://business.turismodeportugal.pt/pt/Gerir/covid-19/Paginas/restituicao-iva-organizacao-
eventos.aspx 
37 Segurança Social website: http://www.seg-social.pt/apoio-extraordinario-a-reducao-da-atividade-economica-de-trabalhador-

independente 

38 Segurança Social website: http://www.seg-social.pt/apoio-a-situacoes-de-desprotecao-social-de-trabalhadores-independentes 
39 Turismo de Portugal website, link available here. 
40 Turismo de Portugal website, link available here. 
41 Turismo de Portugal website, link available here. 

20 

 
 
 
 
 
 
 
 
OpenCall202020 allows for firms in the tourism industry to sell their properties to the fund. Subsequently, this property 
is leased back to the firm, safeguarding the right to repurchase it.42 

LABOUR/SOCIAL SECTOR MEASURES 

Regional labour market measures 

Section 3 in this fiche described the social challenges facing the Azores, including unemployment and barriers faced 

by certain segments of the population. As a response to the pandemic, the regional government of the Azores has 

implemented a set of measures focussing on employability and training, many of which have been supported by the 

European Social Fund (ESF). First of all, the apoios a atribuir durante a aplicação das medidas de redução temporária 

do período normal de trabalho ou suspensão do contrato de trabalho, em situação de crise empresarial was set up 

in  May  2020 to provide  vocational  training  plans  for  local  workers. In this manner, the measure aims  to maintain 

regional employment levels, and to support the operation and competitiveness of local companies through upskilling 
their workers.43 

In  June  2020,  to  enhance  job  security,  the  government  of  Azores  implemented  two  Extraordinary  Workers' 
Stabilisation Measures - renovação44 and conversão,45 respectively to financially support employers who renew fixed-
term employment contracts or who convert fixed-term employment contracts into open-ended employment contracts. 

For local companies with supported trainees, there have been separate labour market measures as well. In June 
2020,  the  regional  government  initiated  three  grant  programmes  related  to  the  valuation  of  internships,46  social 
inclusion,47 and state-sponsored training plans (HABILITAR).48 Furthermore, in July 2020, the regional government 

launched the complemento regional ao lay-off do Código do Trabalho, to maintain employment levels and reduce the 

risk  of  unemployment  by  providing  extraordinary financial support to  employers  forced to  apply the reduction  and 
suspension measures described in articles 298 et seq. of the Labour Code.49 

The  REACT-EMPLOYMENT  measure,  initiated  in  August  2020  by  the  regional  government,  targets  unemployed 

citizens and aims to promote employability through the professional integration of both subsidised and unsubsidised 
unemployed, reinforcing the acquisition and maintenance of socio-professional skills.50 

INVESTEMPREGO was implemented from September 2020 onwards, as a refundable support measure to financially 

support  businesses  in  order  to  ensure  that  they  preserve  their  levels  of  employment  and  reduce  the  risk  of 
unemployment.51 

QUALIFICA+  targets  professional  schools  and  other  certified  training  providers  to  improve  the  Azorean  working 

population's employability through the enhancement of their skills, aptitudes and knowledge, and thereby enhance 

the competitiveness of local firms and the regional economy and address business restructuring needs caused by 
the COVID-19 pandemic.52 

Central government labour market measures 

In addition  to measures  by the regional  government,  the  national  government  of  Portugal  has  initiated  short-term 

labour market measures covering the Azores. For instance, the Medida Extraordinária de Apoio à Manutenção dos 

42 Turismo de Portugal website: http://business.turismodeportugal.pt/pt/Investir/Financiamento/avisos-concursos/Paginas/open-

call-202020.aspx 

43 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/e40d14ed-ae44-4a9f-922c-8938d7586ee1 
44 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/36043bba-de6b-45de-aa26-473c8befa872 
45 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/36043bba-de6b-45de-aa26-473c8befa872 
46 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/9964bf4a-f5fe-4a94-8b28-581932e1acbb 
47 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/7f6e6044-27eb-4469-91d5-c4d6792c9a93 
48 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/fbfd5343-0afb-4dac-94e7-35be38099b48 
49 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/b03c15de-faa9-451c-8ac5-52e57abc6804 
50 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/cdb444e7-7fe5-48cc-9b5b-a45e5d5b72c2 
51 Governo dos Açores website: https://jo.azores.gov.pt/api/public/ato/b49de0c5-e0f3-4226-b0c1-338f64767cb8/pdfOriginal 
52 Governo dos Açores website: https://jo.azores.gov.pt/api/public/ato/619baa64-2a05-44c7-93d6-5e20751fc0fd/pdfOriginal 

21 

 
 
 
 
 
 
 
 
 
 
Contratos de Trabalho provides per-worker subsidies, granted to firms that have been forced to temporarily close 
their  establishments  to  comply  with  COVID-19  restrictions.53  This  measure  is  complemented  by  the  Apoio 
extraordinário à retoma progressiva da atividade económica, which is a subsidy to be used to compensate workers 
for the hours not worked.54 These two measures were supported by the EU under the State Aid Temporary Framework 
and have a total cumulative budget of €43 million. After the expiration of these two measures, another €9.35 million 
employment  aid  scheme to  preserve  jobs  on the  Azores Islands  was  approved in October  2020  by the  European 
Commission.55 

Other measures by the national government include the Prophylactic Isolation Sickness Allowance56 and the COVID-
19  sickness  benefit.57  These  measures  provide  sickness  benefits  equal  to  100%  of  reference  remuneration  for 
employees, self-employed workers and domestic service workers, who are unable to work due to being ill with COVID-

19  and/or  are  required  to  undergo  prophylactic  isolation  for  a  period  of  14  days.  Furthermore,  there  is  special 

assistance for the parents or grandparents of a child that has to undergo prophylactic isolation. This assistance is 
given in the form of a childcare allowance, amounting to 100% of the net reference remuneration.58 

Social measures 

In terms of social measures, the national government of Portugal has initiated the suspension of instalment plans for 
Social Security debts,59 and the Deferral of Contributory Obligations regarding social security for self-employed and 
SMEs, for the months of November and December 2020 specifically.60 

Furthermore,  the  national  government  has  provided  exceptional  family  support  for  self-employed  workers,61 
employees,62 and members of statutory bodies (managing partners),6364 to support parents who are unable to work 
because of childcare responsibilities as a result of school closures. 

Social  sector  institutions  have  also  been  supported  by  the  regional  government.  For  instance,  there  was  an 

extraordinary and transitory increase in cash benefits due to contracted healthcare centres, aiming to compensate 

for the increased operating costs arising from the prevention of infection by COVID-19. The support consists of a €60 
increase in the monthly compensation per patient to the contracted healthcare centre.65 Additionally, recreational and 
philharmonic societies, as well as sports associations supporting high-performance athletes, have received support.66 

There  have  also  been  specific  support  programmes  related  to  housing,  namely  by  supporting  families  to  access 

controlled  rent  houses (Programme  +  Habitação,  P+H),  as well  as  other  relevant  actions that  aimed  at  protecting 
housing, like suspension of payment of social housing rents.67 

In  the  longer term,  the  Plano  de  Recuperação  e  Resiliência,  which  includes  a  specific  budget  earmarked  for the 
Azores, has a strong social component. It aims at supporting, inter alia:68  

53 Segurança Social website: http://www.seg-social.pt/medida-extraordinario-de-apoio-a-manutencao-dos-contratos-de-trabalho-
lay-off- 
54 Segurança Social website: http://www.seg-social.pt/apoio-extraordinario-a-retoma-progressiva-de-atividade 
55 European Commission (2021), Coronavirus Outbreak - List of Member State Measures approved under Articles 107(2)b, 

107(3)b and 107(3)c TFEU and under the State Aid Temporary Framework. 

56 Segurança Social website: http://www.seg-social.pt/subsidio-por-doenca-por-isolamento-profilatico 
57 Segurança Social website: http://www.seg-social.pt/subsidio-por-doenca-por-covid-19 
58 Segurança Social website: http://www.seg-social.pt/assistencia-a-filho-ou-neto-por-isolamento-profilatico 
59 Segurança Social website: http://www.seg-social.pt/suspensao-de-planos-prestacionais-por-dividas-a-seguranca-social 
60 Segurança Social website, link available here. 
61 Segurança Social website: http://www.seg-social.pt/apoio-excecional-a-familia-para-trabalhadores-independentes 
62 Segurança Social website: http://www.seg-social.pt/apoio-excecional-a-familia-para-trabalhadores-por-conta-de-outrem 
63 Segurança Social website: http://www.seg-social.pt/apoio-extraordinario-aos-membros-de-orgaos-estatutarios 
64 Segurança Social website: http://www.seg-social.pt/apoio-excecional-a-familia-para-membros-dos-orgaos-estatutarios1 
65 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/26fde3e9-6bc2-4865-a559-142a19692c48 
66 Governo dos Açores website: https://covid19.azores.gov.pt/?page_id=2616 
67 Governo dos Açores website: https://jo.azores.gov.pt/#/ato/6aebbec1-af0f-4dd9-9e93-19b9cd2afac2 
68 Républica Portuguesa (2021), Plano de Recuperação e Resiliência. Recuperar Portugal, Construindo o futuro. Link available 
here. 

22 

 
 
 
 
 
 
 
 
 
•  Affordable housing (Agenda para habitação nos Açores, 2020-2031). 

•  Social inclusion (Implementar a Estratégia Regional de Combate à Pobreza e Exclusão Social – Redes de 

Apoio Social nos Açore). 

• 

Lifelong learning (Qualificação de adultos e aprendizagem ao longo da vida – Açores). 

•  Development of digital skills in education, via the acquisition of hardware, software, and the introduction of 

digitally oriented pedagogical practices and training dynamics (Educação Digital Açores). 

Reflections on measures69 

It is difficult to fully assess the effectiveness of these measures given their recent implementation and the changing 

nature of the situation. However, some initial insights are outlined below based on available information and extensive 

stakeholder feedback on the implemented measures. 

Stakeholders were clear on the dependence of the Azores on transfers from the national budget and from EU funding 

in strategic areas, and the central role these play in ensuring economic stability. Overall, the majority of the measures 

have been relevant and the regional government was able to rapidly mobilise a number of measures to address the 

first impact of the crisis. Emergency legislation was enacted quickly and relatively smoothly. Measures implemented 

by the regional government – often funded through EU instruments – were found to have been comprehensive and 

effective, as they allowed companies to maintain high levels of employment and to continue their economic activities, 
to the extent possible.   

Cross-cutting measures applicable to the main sectors of the Azores - specifically the adoption of moratoria and lay-

off support measures are considered important in mitigating the impact of the crisis on the sector.  

Economic support programmes channelled from EU funding were said to have been implemented while maintaining 

synergy and  complementarity.  The  speed and  efficiency  with  which  state  aid  was  unblocked  were  also  assessed 

positively in several interviews.  

Despite a number of important milestones, some challenges remain in relation to the clarity of eligibility criteria and 

the  application  process,  and  efficiency  concerning  public  administration  and  the  ease  of  doing  business.  Some 

stakeholders are of the opinion that there have been too many demands for financial and legal proof (to avoid fraud), 

which affected the effectiveness of several measures. Several stakeholders commented that the simplified lay-offs 

measure  was misunderstood  at first,  but  highly  effective thereafter.  Other stakeholders  pointed  to  the  granting  of 

credit under some economic support measures (being conditional on companies retaining jobs) as being inefficient 

and impeding business adaptation to the new reality. Some stakeholders also found loans challenging, noting that 

several entrepreneurs expected financing lines related to COVID-19 to be non-refundable, which was not the case. 

Interviewees emphasised the need for targeted and clear communications.  

5. FUTURE PROSPECTS 

Judging from the available data, the economy of the Azores is on a path to recovery. The performance of several 

indicators,  such  as  the  number  of  registered  jobseekers,  the  number  of  licensed  construction  projects  and  the 

economic activity index, suggest that the  regional socioeconomic situation has already started to improve. Should 

these trends continue, the Azores has the potential to resume their pre-pandemic economic performance in 2022. 

For example, exports in Q1 2021 were already higher than those of the same period of 2019. Although this may partly 

reflect the resumption of postponed consumption decisions, the economy of the Azores is currently recovering. 

69 The reflections on the measures are mainly based on stakeholder feedback  collected in the period January-July 2021. These 
should be treated as initial feedback and insights from the measures rather than an evaluation. The final report attempts to provide 
a more detailed review of the measures in terms of relevance and outputs achieved.  

23 

 
 
 
 
 
 
 
 
Vaccine rollout in the Azores progresses at a good pace and  is in line with mainland Portugal. Easing restrictions 

accordingly would further reinforce the economic recovery, especially in the much-hit tourism and hospitality sector.  

The inclusion of specific measures to increase Azorean connectivity and digitalisation  in Portugal’s Recovery Plan 

(for which the country will receive €16.6 billion from the EU ) could mean efficiency and productivity increases that 

will set the region’s economy on a stable growth path in the medium term. The programme also envisages specific 

measures  to  boost  Azores  hydrogen  and  renewable  energy  production  and  storage  capacity.  This  is  a  good 

opportunity for the region to generate further economic growth and to pursue the ecological transition. 

However, the insularity of the Azores makes the pace of recovery uncertain compared to mainland Portugal and the 

EU as a whole. In particular, high freight costs and dependence on tourism makes the economy more susceptible to 

further shocks. For example, imports remain well below pre-crisis levels. Uncertainties related to global economic 

and COVID-19 developments (e.g. new, more contagious variants, persistent travel restrictions, etc.) will continue to 

affect the regional economy. 

Looking at the sectors analysed above, retail is expected to make a quick recovery, fuelled by increased spending 

thanks to accumulated household savings over 2020. Particularly high volumes of credit card transactions in May 

2021 evidence recovery in the sector.   

The tourism sector took a heavy blow in 2020. Current trends in the available data, such as the number of airline 

passengers  and  income from tourism  accommodation,  suggest  that  it  is  unlikely to  fully recover  until  2023  at the 

earliest. Year-on year data indicate that by January 2021, the Azores were still well below 2019 levels with regard to 

passenger arrivals, the number of guests and income from tourism. Although the recovery is expected to be slow-

paced and heavily  dependent  on  future  COVID-19  developments, the  fact  that  the  Azores  have continuously  low 

infection rates and a good vaccination rollout could support sectoral recovery.  

The economic performance of the transport sector is still well below its pre-pandemic levels. Neither air nor maritime 

traffic have yet shown notable recovery. The former is probably due to the slow progress in the resumption of tourism, 

and  the  latter  due  to  import  fluctuations.  Nevertheless,  Portugal’s  Recovery  Plan  includes  specific  measures  to 

improve the underperforming road system in the Azores, which could translate into an opportunity for the sector to 

transform and recover.  

The construction industry did not suffer a significant decline during the lockdown period and, by May 2021, the sector 

was  already  outperforming  its  pre-crisis  economic  profile.  Furthermore,  since the  numbers for  2020 are  similar  to 

those  of  2019,  2021  levels  indicate  a  genuine  increase  in  activity,  beyond the  resumption of  postponed  projects. 

Considerable uncertainties related to the volatility of the global market remain, including the increase in commodity 

prices,  which  have  the  potential  to  cool  sectoral  performance  in  the  short-  to  mid-term.  Ensuring  the  supply  of 

construction materials necessary to carry out current orders will therefore play a critical role. 

The  agriculture  sector  was  significantly  affected.  Portugal’s  Recovery  Plan  includes  specific  water  management 

investments for the Azores that could help in making the sector more resilient in the future. The most recent available 

figures  on  catch  size  and  value  in  2021  seem  to  indicate  tentative  economic  recovery  in  the  sector,  with  levels 

comparable to those of 2019. 

With regard to social indicators, the number of jobseekers did not increase during the crisis but rather  levelled out 

and remained more or less static for some months. Subsequently, their numbers resumed an encouraging downward 

trend in Q1 2021, which can be linked to increased economic activity. Nevertheless, it is important to note that the 

decrease in jobseekers may be partly due to individuals leaving the labour market. Although job offers significantly 

increased by May 2021, this may only reflect a seasonal effect rather than consistent and sustainable growth.  

24 

 
 
 
 
 
 
 
 
 
 
 
Although data are not yet available, the pandemic has probably exacerbated poverty risk and depressed average 

wage levels. It is important to continue to provide social support to mitigate this situation. In this context, Portugal’s 

Recovery  Plan  envisages specific  social  programmes  and  affordable  housing projects for the  region,  which  could 

significantly alleviate risk-of-poverty rates in the Azores, and help to tackle other ongoing social challenges.  

6. POLICY RECOMMENDATIONS FOR RECOVERY AND RESILIENCE 

RECOMMENDATION 1: IMPROVING THE BUSINESS ENVIRONMENT AND PUBLIC ADMINISTRATION 
EFFICIENCY THROUGH DIGITALISATION  

Type of measure: Public sector reform, public-private partnership modalities, investment   

Duration: Short-medium term  

Challenge: The COVID-19 pandemic severely limited the economic activities of many companies, citizens and the 

public administration. Limitations in production as a result of the COVID-19 restrictions and supply chain disruptions, 

together with a fall in demand caused by lockdowns and social distancing measures, are the main factors driving the 

decline  in  business  performance.  Although  economic  agents  have  somewhat  adapted  to  the  situation  by 

implementing  new business  processes,  a more  resilient  and  digitally  literate  population  and more technologically 

sound companies and public institutions could have coped better with the crisis. Furthermore, strong digital skills are 

of paramount importance in an increasingly automatised and digitalised world, and therefore for the future economic 

development of the Azores. This has been noted by various stakeholders as a key priority for the future. 

Objective: Improving citizens’ digital skills, digitalising the public administration, promoting digitalisation of the private 

sector.  

Actions: The  Portuguese  Recovery  and  Resilience  Plan  envisages  strong  training  support  for  the  digital 
transformation  of  the  public  sector.  The  regional  government  has  committed,  though  #AzoresE-Government70,  to 
digitalise all public services, with a special focus on reducing bureaucracy in the process of industrial and business 

licensing. It is therefore also key to simultaneously supporting the private sector’s digital transition. 

Only  digitally-savvy  citizens  and  businesses  can  take  advantage  of  a  modern  public  administration.  As  the 

government sets up new online procedures, possibilities could be explored to improve access and service provision. 

This  could  include  digital  training  for  public  agency  staff members  to  train  the  private  sector, and  the  provision  of 

weekly training sessions for businesses looking to make use of them. In addition, walk-in days hosted by public sector 

representatives  and  agencies  are  a  flexible  way  to  introduce  new  online  platforms  to  interested  businesses  or 

potential entrepreneurs.   

This  would  make  the  public  administration  more  productive,  efficient,  and  resilient.  Benefits  would  include  the 

reduction of the operating costs of the public sector and of the time required for citizens or businesses to access 

public services. This is especially important in light of the increase in the number of projects that will be launched and 

managed in the coming months and years to support the recovery and resilience of the Azores. Furthermore, it would 

set an example for the population and the private sector, incentivising the uptake of digital solutions.  

In  addition,  regional  authorities  could  also  provide  support  for private  companies via  grants  or fiscal  incentives  to 

support the creation of websites, the establishment of online platforms, or the acquisition of digital hardware such as 

computers.  Opportunities  may  be  explored  to  provide  dedicated  training  to  the  unemployed  to  increase  their 

employability  in  the  labour  market.  This  would  create  more  productive,  efficient  and  resilient  companies,  while 

70 Programme of the 13th Government of the Autonomous Region of the Azores. Available at: 
http://www.alra.pt/images/pg_xiii/ppg_xiii_1.pdf  

25 

 
 
 
 
 
 
 
 
 
facilitating the absorption and upskilling of the unemployed. Ultimately, this would improve the competitiveness of the 

Azores. 

RECOMMENDATION  2:  PROMOTING  THE  AZORES  AS  AN  ATTRACTIVE  LOCATION  FOR  REMOTE 
WORKING AND LONG-TERM STAYS  

Type of measure: Diversification and investment  

Duration: Short- and medium-term 

Challenge: Tourism is a key economic activity of the Azores and has been deeply affected by the pandemic. The 

return of longer-stay, international tourists has been sluggish. The almost complete cessation of travellers arriving 

to the islands has been a heavy blow to the tourist industry. This has resulted in a significant loss of business, jobs 

and tax revenue and affected industries with strong ties to the tourism sector, such as agriculture. To encourage 

recovery and build resilience, the country must diversify its tourism offer.  

Objective: To improve the tourism sector of the Azores through diversification, with a particular focus on attracting 

‘digital nomads’/remote workers to stay on the islands for longer periods of time. Skilled workers able to telework 

have  been  increasingly  exploring the  alternative  of  working abroad for  extended  periods  since  the  onset  of the 

pandemic. The presence of such teleworkers would ensure a new source of demand for tourism services and be 

particularly important during periods of lower traditional tourism activity.  

Actions: The promotion of the Azores as an attractive option for remote workers, through the establishment of a 

task force, which could be considered by the Tourism Association of the Azores or with a local business incubator. 
Lessons can be learned from the recent Digital Nomad Village of Madeira,71 where Startup Madeira, together with 
the regional government of Madeira developed a  pilot project to attract digital nomads. This task force could be 

assigned a range of short-term to longer-term actions, such as: 

•  Carrying  out  an  assessment  of  the  degree  to  which  the  islands  meet  the  requirements  (e.g.  available 

infrastructure, affordable workspace, affordable living space) to be an attractive destination for EU remote 

workers and build an action plan to address any deficiencies. 

• 

Launching  a  widespread  advertising  campaign  internationally  to  inform  digital  nomads/remote  workers 

about  the  attractive  conditions  on  the  Azores,  including  living  space,  workspace,  visa  schemes,  and 

internet speed. Reaching digital nomads could be done through social media channel campaigns to inform 

them of the benefits of temporarily living in the Azores. The Visit Azores website could be a tool to provide 

information to interested digital nomads/remote workers, and be linked in social media campaigns.  

•  Developing  visit  packages  for remote  workers (or  other  types  of  long-term tourists),  offering  integrated 

options for housing, workspace and/or temporary memberships at local co-working spaces. 

• 

Facilitating knowledge sharing through community-building events between self-employed remote workers 

and  local  entrepreneurs,  which  would  be  exposed  to  business  models  and  ideas  from  (potentially)  all 

sectors across the globe. 

Niche tourism and ICT tourism have already been identified as R&I innovation priorities for the Azores. 

71 This initiative has been developed by the Regional Government of Madeira, Startup Madeira and private individuals. More 
information available at the official site.  

26 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
RECOMMENDATION 3: DEVELOPING THE REGIONAL ECO-TOURISM OFFER 

Type of measure: Skills development 

Duration: Medium-term 

Challenge: 2020  saw  69%  fewer  guests  in  tourist  establishments  and  a  75%  drop  in  income  from  these 

establishments as compared to 2019. Recent figures indicate that while the number of tourist visits has increased, 
the average amount of money spent per tourist is much lower than it was before the pandemic.72 This can largely be 

attributed to the region currently attracting more domestic tourists (from the Portuguese mainland) — vis-à-vis those 

of other nationalities — who tend to stay for a shorter time and spend less. Returning tourism income to pre-pandemic 

levels will depend on attracting international tourists. The Azores are increasingly recognised as a sustainable eco-
tourism destination.73 The region has one of the most biologically unique coral reefs in the world74 and has a rich 
marine life with various whale species. For the tourism sector to recover, it needs to build on these opportunities and 

transform into an increasingly diverse model, with a wider array of eco-tourism activities for tourists to justify their 

undertaking long-distance travel and staying for longer periods of time.  

Objective: Position the  Azores  as  an  eco-tourism  hub by  increasing the ecological  standards  of  its many tourist 

activities. Eco-tourism activities with promising diversification potential include recreational boating, diving, cetacean 
watching, fishing, geotourism, volcanological tourism, bird watching, surf, golf, diving, and hiking, among others.75 
Each of these need to be developed to a similar standard so that tourists feel that they have options to choose from.  

Actions: Family-style  tourism  is  an  interesting  potential  market  segment  to  which  the  region’s  achievements  in 
sustainable tourism might be promoted76. If successful, this would further diversify the types of tourists visiting the 

region. Families tend to stay for longer periods, and often become regular visitors. Therefore, the focus of eco-tourism 

could  additionally  be  targeted  towards  families  to  present  the  Azores  as  an  accessible  destination  to  introduce 

children to nature, marine biology and eco-tourism.  

The Azores tourism sector needs to promote eco-tourism as a means to diversify the sector in a sustainable way and 

increasingly make its offers more family-friendly. This requires marketing, but also the appropriate skillset for staff 

working in the tourism sector. Training and education need to be provided to ensure that eco-tourism can be further 

developed (e.g. in terms of activities such as snorkelling or scuba diving, but also in terms of preservation activities), 

through tourism-related vocational  training for  young  people.  Regional  authorities could  consider  implementing  a 

community-led approach in partnership with private eco-tourism firms, in order to design and implement an integrated 

eco-tourism  strategy.  New  regulations  and  codes  of  conduct  could  be  developed  addressing  the main  ecological 

risks of tourist activities. 

The  European  Social  Fund+  (ESF+)  could  constitute  a  possible  source  of  support  to  vocational  training  and 

certification of young workers in marine eco-tourism and preservation activities, targeted specifically towards families. 

Further support from the European Regional Development Fund (ERDF) could be explored.  

72 Based on data from the National Institute of Statistics (INE). 
73 https://www.responsibletravel.com/holidays/azores/travel-guide/responsible-tourism-in-the-azores 
74 https://www.oceanoazulfoundation.org/wp-content/uploads/2019/11/Short-Summary-Scientific-Report_Blue_Azores-2.pdf 
75 Realising the Potential of the Outermost Regions for Sustainable Blue Growth (2017). Available at: 
http://publications.europa.eu/resource/cellar/5398b8ea-a71c-11e7-837e-01aa75ed71a1.0001.01/DOC_1 
76 Idem. 

27 

 
 
 
 
 
 
 
 
   
 
 
RECOMMENDATION  4:  SUPPORTING  THE  AZORES  DAIRY  SECTOR  TO  BETTER  FULFIL  ITS 
POTENTIAL 

Type of measure: Technical assistance 

Duration: Medium to long-term 

Challenge: The agricultural sector in the Azores accounts for 8.5% of its total GDP. Its dairy sector is particularly 
strong,  accounting  for  30%  of  Portuguese  production.77  However,  the  agricultural  sector  has  experienced  limited 

growth over the past decade, and was further affected by the drop in demand for agricultural produce during the 

pandemic.  While  the  sector  had  already  received  support  prior  to  the  pandemic  (e.g.  through  the  Azores  Rural 

Development Programme PRORURAL+) and during the pandemic, longer-term efforts are needed to ensure that it 

remains competitive. As prices of agricultural products are expected to stay low, structural improvements in the sector 

are even more important.  

Objective:  To  build  on  ongoing  efforts  to  scale  up  the  Azores  dairy  sector  and  increase  the  value-added  of  its 

products through improved quality, organic product development, and a focus on animal welfare in the mid- and long-

term. This is also in line with the Smart Specialisation R&I innovation priorities of the Azores, concerning livestock 
and agro-industry diversification and sustainability.78 The Azores dairy sector depends primarily on internal resources 
and therefore has room to further specialise and ensure significant returns.79 The Azores have existing programmes 
(such as the Happy Cow Programme) to build on.80  Therefore, it would be key to increase exports from the region’s 

dairy sector by continuing to improve its organic production and high standards for animal welfare. 

Actions: For the sector to remain successful and make a strong recovery, it needs to retain access to  extension 

services  in the  short  and  long  term,  i.e. technological transfers and training  services,  and  to  gain  access to  new 

markets for exports. Market research could be conducted to assess the most promising value-added possibilities for 

the regional dairy sector. The results of such research would guide the continuation of support to the dairy sector, to 

enhance the value of dairy products. This could, for example, stem from improved packaging, or from improving the 

quality  or  production  process  of  milk  and  dairy  products  such  as  cheese,  yoghurt,  and  butter  (e.g.  in  terms  of 

environmental footprint or animal welfare). Based on market research, the most promising areas could be identified, 

and  priorities for  investment  could  be  set  accordingly,  e.g.  in terms  of  specific  equipment  or training.  Support for 
these  investments  could  be  channelled  through  existing  extension  support  services81  available  to  farmers  in  the 
region. National and regional funds such as capital from QUALIFICA+ vocational training fund could be mobilised. 

At  the  same  time,  the  regional  government  could  support  a  wider-scale  promotional  campaign  to  increase  the 

international attractiveness of Azorean dairy products, emphasising the region’s milk quality, high levels of animal 

welfare, and the protected denomination of origin cheeses. It could target wider European markets beyond Portugal.  

77 de Almeida, A.M., Alvarenga, P. & Fangueiro, D. (2021) The dairy sector in the Azores Islands: possibilities and main 
constraints towards increased added value. Trop Anim Health Prod 53, 40 https://doi.org/10.1007/s11250-020-02442-z  
78 Eye@RIS3: Innovation Priorities in Europe. More information available here.  
79 Ibid. 
80 See Terra Nostra Happy Cows Milk Programme. More information available here. 
81 Extension is an informal educational process directed toward the rural population. This process offers advice and information to 
help them solve their problems. Extension also aims to increase the efficiency of the family farm, increase production and 
generally increase the standard of living of the family farm. See for an overview: https://www.fao.org/3/t0060e/T0060E03.htm  

28 

 
 
 
 
 
 
 
 
 
 
 
RECOMMENDATION 5: DIVERSIFYING THE AZORES FISHERY SECTOR IN A SUSTAINABLE FASHION 

Type of measure: Training and legislative reform 

Duration: Medium- and long term 

Challenge: The Azores have one of the highest economic dependencies on fisheries of all European Union regions. 
The archipelago accounts for the largest sub-area of Portugal’s Exclusive Economic Zone (EEZ).82 While the total 
weight of fish caught during the pandemic did not decrease, reduced demand led to lower revenues. During the first 

stages of the COVID-19 pandemic, fuel subsidies were distributed in the Azores in order to aid fishermen affected 

by the pandemic. However, stakeholders also pointed out that these sorts of subsidies benefit those selling fuel more 

than  fishermen  themselves,  and  that  if  fishing  levels  are  not  well  controlled,  cheaper  fuel  can  lead  to  excessive 

fishing, depleted stocks, negative environmental consequences, and reduced catch volumes. 

Objective: Supporting the fishery value chain – including both the fishing activities and the processing sector –  while 

ensuring its sustainability in the long term. Solutions to support the fishery sector need to focus on increasing prices 

by increasing their value added while protecting the important biology of the region, especially considering that less 

than 1% of the Azores EEZ is currently under full protection.  

Actions:  A  three-pronged,  long-term  approach  is  needed  to  reach  this  objective.  Firstly,  support  needs  to  be 

accompanied  by  awareness-raising  for  fishermen  and  other  stakeholders,  as  there  is  still  a  need  for  training  on 

sustainable fishing and ocean literacy through the archipelago.  Fishermen need to be supported to improve their 

fishing practices, e.g. by using new technologies (e.g. through training) or new equipment (through grants), in ways 

that maintain the high environmental standards of the traditional fishing practices in the region.  

Second, the fish value chain could better communicate its achievements in sustainability. Certification and labelling 

schemes are important to consumers, and allow processors to charge a premium on their produce. The capture of 

high-demand  species  (e.g.  tuna)  with  the  use  of  certified  sustainable  techniques  has  the  potential  for  greater 
development.83  It  is  therefore  important  to  study  issues  such  as  new  packaging  techniques,  new  distribution 
channels, new markets and fish traceability to further develop this potential. Partnerships with research organisations 

(e.g. Universidade dos Açores, IMAR–Instituto do Mar) could be explored, to better identify the opportunities. 

Third, it would be useful to revisit the need for legislative change at national level, to prevent unsustainable fishing 
practices from a legal perspective84 and to increase the size of areas under full protection.  

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29 

 
 
 
 
   
 
 
 
 
 
 
 
 
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social.pt/subsidio-por-doenca-por-isolamento-profilatico  

•  Segurança Social, 2021. Suspensão de execuções e de planos prestacionais por dívidas à Segurança Social. 

[online] Available at: http://www.seg-social.pt/suspensao-de-planos-prestacionais-por-dividas-a-seguranca-social 

•  Serviço Regional de Estatística dos Açores (SREA), 2021. Airplane disembarkment. [online] Available at: 

https://srea.azores.gov.pt/ReportServer/Pages/ReportViewer.aspx?/Quadros/DesembarquePassageirosAereos 

31 

 
 
•  Serviço Regional de Estatística dos Açores (SREA), 2021. Economic activity indicators. [online] Available at: 

https://srea.azores.gov.pt/Conteudos/Media/file.aspx?ida=10171 

•  Serviço Regional de Estatística dos Açores (SREA), 2021. Overnight stays data. [online] Available at: 

https://srea.azores.gov.pt/Conteudos/Media/file.aspx?ida=8680 

•  Serviço Regional de Estatística dos Açores (SREA), 2021. Tax enforcement. [online] Available at: 

https://portal.azores.gov.pt/documents/36626/3079560/ORAA_2021_Proposta_Relatorio.pdf/63e0e39c-dd42-8e97-
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•  Serviço Regional de Estatística dos Açores (SREA), 2021. Tourism indicators. [online] Available at: 

• 

• 

• 

• 

• 

• 

https://srea.azores.gov.pt/upl/%7Bbb32e63d-a055-4a47-b8cd-ee6809dc9b26%7D.pdf 
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financiamento/Paginas/linha-apoio-economia-covid-19-empresas-montagem-eventos.aspx   
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Turismo. [online] Available at: http://business.turismodeportugal.pt/pt/Investir/Financiamento/mais-oportunidades-
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eventos.aspx  

32 

 
 
 
 
 
GETTING IN TOUCH WITH THE EU 

In person 

All over the European Union there are hundreds of Europe Direct information 
centres. You can find the address of the centre nearest you at: 
https://europa.eu/european-union/contact_en 

On the phone or by email 

Europe Direct is a service that answers your questions about the European 
Union. You can contact this service: 

–  by freephone: 00 800 6 7 8 9 10 11 (certain operators may charge for 

these calls), 

–  at the following standard number: +32 22999696 or  
–  by email via: https://europa.eu/european-union/contact_en 

FINDING INFORMATION ABOUT THE EU 

Online 

Information about the European Union in all the official languages of the EU is 
available on the Europa website at: https://europa.eu/european-
union/index_en 

EU publications 

You can download or order free and priced EU publications at: 
https://op.europa.eu/en/publications. Multiple copies of free publications may 
be obtained by contacting Europe Direct or your local information centre (see 
https://europa.eu/european-union/contact_en). 

EU law and related documents 

For access to legal information from the EU, including all EU law since 1952 
in all the official language versions, go to EUR-Lex at: http://eur-lex.europa.eu 

Open data from the EU 

The EU Open Data Portal (http://data.europa.eu/euodp/en) provides access to 
datasets from the EU. Data can be downloaded and reused for free, for both 
commercial and non-commercial purposes. 

 
 
 
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