COMMISSION STAFF WORKING DOCUMENT Monitoring Road Safety Progress in the EU - Portugal Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Report on the Implementation of the EU Road Safety Policy Framework at the Mid-Point
Date: 2026-02-13
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: EU investment, Portugal, accident prevention, common transport policy, innovation, road safety, road transport, transport accident, transport infrastructure, transport statistics

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 13.2.2026  SWD(2026) 54 final  COMMISSION STAFF WORKING DOCUMENT Monitoring Road Safety Progress in the EU - Portugal Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Report on the Implementation of the EU Road Safety Policy Framework at the Mid-Point {COM(2026) 77 final} - {SWD(2026) 33 final} - {SWD(2026) 34 final} - {SWD(2026) 35 final} - {SWD(2026) 36 final} - {SWD(2026) 37 final} - {SWD(2026) 38 final} - {SWD(2026) 39 final} - {SWD(2026) 40 final} - {SWD(2026) 41 final} - {SWD(2026) 42 final} - {SWD(2026) 43 final} - {SWD(2026) 44 final} - {SWD(2026) 45 final} - {SWD(2026) 46 final} - {SWD(2026) 47 final} - {SWD(2026) 48 final} - {SWD(2026) 49 final} - {SWD(2026) 50 final} - {SWD(2026) 51 final} - {SWD(2026) 52 final} - {SWD(2026) 53 final} - {SWD(2026) 55 final} - {SWD(2026) 56 final} - {SWD(2026) 57 final} - {SWD(2026) 58 final} - {SWD(2026) 59 final}  
 
 
Contents 

1. Summary ............................................................................................................................ 2 

2. Road Safety Strategy and Measures .................................................................................. 2 

2.1 Road Safety Strategy.................................................................................................... 2 

2.2 Road Safety Governance.............................................................................................. 3 

2.3 Main Safety Issues ....................................................................................................... 3 

2.4 Road Safety Targets ..................................................................................................... 3 

2.5 Road Safety Measures.................................................................................................. 4 

3. Road Safety Progress ......................................................................................................... 4 

3.1 Road Safety Outcomes ................................................................................................. 4 

3.2 Road Safety Performance Indicators ........................................................................... 7 

4. Monitoring Road Safety Strategy Implementation ............................................................ 9 

4.1 Implementing progress ................................................................................................ 9 

4.2 Best practices ............................................................................................................... 9 

4.3 Gaps ............................................................................................................................. 9 

5. Conclusions and Recommendations .................................................................................. 9 

1 

 
 
 
 
 
 
 
 
1. Summary 

In 2024, Portugal was substantially above the EU average (45) with 58 road fatalities per 
million inhabitants. Compared to 2019, a decrease of 10% in road fatalities was achieved. In 
2023, 2,500 people were seriously  injured which is  5% higher than the respective figure in 
2019. 

Compared to the EU average, the distribution of fatalities in Portugal shows a relatively high 
proportion of fatalities among riders of powered two wheelers (PTWs) and on urban roads.  

In the National Road Safety Strategy of Portugal (Vision Zero 2030), the targets of halving 
the numbers of road fatalities and serious injuries by 2030 compared to 2019 have been set. 
The Vision Zero 2030 sets out the long-term vision for road safety policy and establishes the 
corresponding strategic and operational goals, which are implemented through biennial action 
plans. In addition, 62 potential road safety interventions are proposed in the strategy, grouped 
into eight areas, which can be included in the action plans. The Strategy has not been formally 
approved which makes it challenging to implement.  

Based on the latest available data, Portugal is currently not yet on track to meet the 2030 
targets.  

2. Road Safety Strategy and Measures 

2.1 Road Safety Strategy 

The National Road Safety Authority (ANSR), in the context of carrying out its planning and 
coordination  work  to  support  the  Government’s  Road  Safety  policy,  prepared  the  National 
Road  Safety  Strategy  2021-2030  –  Vision  Zero  2030,  in  accordance  with  the  European 
Commission’s road safety policy 2021-2030, the Stockholm Declaration, the UN Sustainable 
Development Goals and the Safe System approach. The Vision Zero 2030 sets out the long-
term vision for road safety policy of the country and establishes the corresponding strategic 
and operational goals, which are implemented through biennial action plans1.  

A  document  on  the  methodology  for  the  preparation  of  biennial  action  plans  has  also  been 
published2.  

1 https://visaozero2030.pt/en/ 
2https://visaozero2030.pt/wp-content/uploads/Phase_2.3-
Methodology_for_the_preparation_of_biennial_action_plans.pdf 

2 

 
 
 
 
 
 
 
 
 
 
 
Table 23.1: National road safety strategy  

Timeframe 

Lead Authority 

Link 

Portugal 
2021-2030 
National road safety authority with scientific support from the National 
Laboratory for Civil Engineering (LNEC) and Prof. Fred Wegman from Delft 
University 

https://visaozero2030.pt/en/ 

2.2 Road Safety Governance 

The  National  Road  Safety  Authority  (ANSR),  the  Executive  Council  of  Experts,  the  Non-
Executive  Council  of  Experts,  the  National  Consultation  Council  and  the  International 
Consultation  Council  are  responsible  for  the  formulation  of  the  national  road  safety 
strategy.  

The  National  Road  Safety  Authority  is  responsible  for  the  monitoring  of  road  safety 
developments in the country. 

2.3 Main Safety Issues 

According to the National Road Safety Strategy of Portugal, and based on the crash statistics 
of the period 2010-2019, the following main issues arise, which also form some of the main 
challenges for the decade 2021-2030: 

• 

In  the  period  2010-2019,  54%  of  fatalities  and  60%  of  killed  and  serious  injured 
casualties (KSI) occurred in urban areas. 

•  PTW riders represented 30% of fatalities on streets and through roads in the period 

2015-2019. 

•  The pedestrian mortality rate in Portugal (13.9 fatalities per million habitants) is higher 

than the EU average (10.4). 

• 

Ιn 2015-2019, a high increase of 15% was recorded in the mortality rate in age group 
20-24  years,  which  can  be  partially  explained  by  the  increase  in  the  number  of 
motorcyclists. 

•  The percentage of drivers killed in crashes who had BAC above 0.5 g/l increased in the 

period 2015-2019. 

•  Speeding is most prevalent on all road types in Portugal, compared to other European 

countries. 

2.4 Road Safety Targets 

The  following  general  targets  have  been  set  in  the  Road  Safety  Action  Plan  2021-2030  of 
Portugal: 

•  By 2030, a 50% reduction in fatalities, compared to 2019. 

•  By 2030, a 50% reduction in serious injuries, compared to 2019. 

3 

 
 
 
 
 
 
 
 
 
 
 
 
2.5 Road Safety Measures 

A total of 62 potential interventions divided in eight areas are proposed in the road safety 
strategy, which can be included in the road safety action plans. The potential effects of these 
interventions have been estimated based on literature findings3.  

Table 23.2: Road safety areas and number of potential interventions 

Area  

1.  Urban areas 

2.  Rural roads 

3.  All road categories 

4.  PTW riders 

5.  Speeding 

6.  Education and driver training and licensing 

7.  Alcohol 

8.  Exposure and travel mode 

Total 

Interventions 

6 

7 

10 

15 

8 

8 

6 

2 

62 

3. Road Safety Progress 

3.1 Road Safety Outcomes 

In Portugal, 618 people were killed in 2024 based on provisional data and 2,500 were seriously 
injured in road crashes in 2023. Based on preliminary data for 2024, Portugal ranked 22nd out 
of the 27 EU countries in terms of the lowest numbers of fatalities per million inhabitants. 
In fact, 58 road fatalities per million inhabitants were recorded that year, which was well above 
the EU average (45).  

Figure 23.1 Mortality rates by country, 2024  

Sources: CARE database on road crashes; population data from Eurostat (online data code demo_pjan). 

3https://visaozero2030.pt/wp-content/uploads/PHASE2-Technical_Scientific_Foundations_2021-
2030_Road_Safety_Strategy-Framework_potential_interventions.pdf 

4 

 
 
 
 
 
 
 
 
 
Compared to 2019, which is the baseline, the number of fatalities decreased by 10% in 2024, 
while  the  number  of  serious  injuries  increased  by  5%  in  2023.  Thus,  based  on  the  latest 
available  data,  Portugal  needs  further  actions  to  meet  the  2030  targets  of  halving  the 
numbers of road fatalities and serious injuries.  

Figure 23.2 Road fatalities and target 2030  
(Source CARE database) 4 

Figure 23.3 Serious road injuries  
(Source: CARE database)4 

4 It is noted that the global COVID-19 pandemic had an impact on the CARE data for 2020 and 2021 for many 
European countries. Traffic volumes dropped sharply during the pandemic due to traffic restrictions, which was 
associated with a significant drop in road traffic crashes and fatalities. 

5 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Compared to the EU average, the distribution of fatalities in Portugal shows that a relatively 
high proportion of fatalities are registered among powered two-wheelers. Also, a higher-than-
average  proportion  of  the  fatalities  occur  on  urban  roads5.  In  fact,  fatalities  on  urban  roads 
accounted for 55% of all road fatalities in 2023 and powered two-wheelers for 30%. 

An overview of the evolution of road fatalities and serious injuries during the period 2019-
2023 (year with the latest available data) is provided below for specific types of roads, crashes 
and road users. Overall, in Portugal, road fatalities declined for almost all groups, except on 
roads  outside  urban  areas  and  among  powered  two-wheeler  (PTW)  riders  and  cyclists.  The 
highest  increase  was  recorded  for  cyclists  (22%)  and  PTW  riders  (19%),  while  the  highest 
decrease was recorded on motorways (27%) and among pedestrians (22%).  

On the other hand, the number of serious injuries increased between 2019 and 2013. Increases 
are observed for all groups examined, except serious injuries on motorways and pedestrians. 
The  largest  increase  of  serious  injuries  was  recorded  for  cyclists  (49%),  followed  by  PTW 
riders (29%).  

Table 23.3: Evolution of road fatalities, 2019-2023 

Fatalities 

2019 

2023 

%  
in 2023 

% change 
2019-2023 

Total road fatalities 

Inside urban areas 

Outside urban areas 

Motorways 

Single vehicle crashes 

Multi vehicle crashes 

Car occupants 

PTW riders 

Cyclists 

Pedestrians 

688 

394 

227 

67 

282 

279 

235 

163 

27 

140 

642 

350 

243 

49 

257 

290 

230 

194 

33 

109 

- 

55% 

38% 

8% 

40% 

45% 

36% 

30% 

5% 

17% 

-7% 

-11% 

+7% 

-27% 

-9% 

+4% 

-2% 

+19% 

+22% 

-22% 

5  European  Commission  (2023),  Country  Profile  Portugal.  Road  Safety  Observatory.  Brussels,  European 
Commission, Directorate General for Transport. 

6 

 
 
 
 
 
 
 
 
 
 
Table 23.4: Evolution of serious injuries, 2019-2023 

Serious Injuries 

Total serious injuries 

Inside urban areas 

Outside urban areas 

Motorways 

Single vehicle crashes 

2019 

2,383 

1,559 

656 

168 

921 

2023 

2,500 

1,682 

668 

150 

957 

Multi vehicle crashes 

1,048 

1,215 

Car occupants 

PTW riders 

Cyclists 

Pedestrians 

790 

715 

121 

450 

805 

925 

180 

350 

3.2 Road Safety Performance Indicators 

%  
in 2023 

% change 
2019-2023 

- 

67% 

27% 

6% 

38% 

49% 

32% 

37% 

7% 

14% 

+5% 

+8% 

+2% 

-11% 

+4% 

+16% 

+2% 

+29% 

+49% 

-22% 

Portugal performs better than the EU average on seat-belt use among front car occupants, but 
the respective rate for rear passengers is at the same level as the EU average. Self-reported 
drink-driving is slightly higher than the EU average. Also, the average age of the passenger car 
fleet in Portugal is higher than the EU average, at 13.6 years. 

7 

 
 
 
 
 
 
Table 23.5: Road Safety Performance Indicators, 2022 – 2025 (Source: ERSO, Country 
Profiles) 

Speeding6 
% of passenger cars travelling within speed limits a 

Motorways 
Rural Roads 
Urban Roads 

Seat belt & CRS use rates (%) a*,b 

Front 
Rear 
Child restraint systems (roadside observations) 
Child restraint systems (in-vehicle inspections) 

Helmet use rates (%) a 

PTW driver 
PTW passenger 
Cyclist 

DUI of Alcoholc 
(self-reported) 

Portugal 

EU 

2022 

2025 

2022 

2025 

44.0 
36.0 
73.0 

98.0 
78.3 
90.7 
/ 

99.8 
99.5 
47.7 

69.0 
52.0 
76.0 

97.7 
73.8 
- 
/ 

99.9 
99.4 
38.2 

- 
- 
- 

93.1 
75.3 
67.0 
- 

97.0 
94.4 
37.8 

- 
- 
- 

92.4 
69.9 
83.3 
- 

97.6 
97.0 
34.5 

% of car drivers who have driven at least once in the last 30 days 
over the legal limit 
Driver Distraction a 

% of drivers not using hand-held mobile device/phone while 
driving 

Vehicle Safety 

12.7 

- 

11.8 

11.8 

96.7 

95.3 

94.8 

94.5 

% of new passenger cars rated with 4 EuroNCAP stars and above 
a 
Average age of passenger car fleet (years)d 

69.7 

13.6 

82.0 

13.6 

83.6 

12.3 

82.7 

12.5 

Sources: a Baseline and Trendline projects, b ETSC (2022), c ESRA3 project (2024), d ACEA (2024, 2025), Notes: 
*2025 data only for weekdays 

6 An EU average is not available for speeding, due to different legal speed limits among countries, which does not 
allow for a straightforward comparison.  

8 

 
 
 
 
 
 
 
 
 
4. Monitoring Road Safety Strategy Implementation 

This section is based on the self-assessment provided by the country. Since Portugal did not 
provide a self-assessment, the sections below are left intentionally empty.   

4.1  Implementing progress 

4.2  Best practices 

4.3  Gaps 

5. Conclusions and Recommendations 

In the Portuguese road traffic safety strategy for the decade 2021-2030, the targets of halving 
the numbers of road fatalities and serious injuries by 2030, compared to 2019, have been 
set. A total of 62 potential interventions grouped into eight road safety areas are included in 
the road safety strategy, which can be included in the biennial road safety action plans.  

In 2024, Portugal, with 58 road fatalities per million inhabitants, ranked 22nd out of the 27 EU 
countries in terms of the lowest numbers of fatalities per population. Compared to the EU 
average, the distribution of fatalities in Portugal shows a relatively high proportion of fatalities 
on urban roads and among riders of powered two-wheelers.  

Compared to 2019, the number of fatalities decreased by 10% in 2024, while an increase of 5% 
in serious injuries was recorded in 2023. In addition, the number of killed and seriously injured 
cyclists and PTW riders was considerably increased over the period 2019-2023. Thus, based 
on the latest available data, Portugal needs further actions to meet the 2030 targets. 

Progress is arguably hampered by the fact that since 2022 the National Strategy has not been 
formally approved. A lack of empowerment makes implementation challenging. For example, 
the  ANSR  has  no  powers  to  convene  other  stakeholders  such  as  infrastructure  managers, 
municipalities, schools. Approval of the Strategy would appear to be an important step forward.   

9