Today’s world is characterised by complex, multi-dimensional challenges requiring co-ordinated national and international action. One such challenge is the management of global public commons such as the ocean.
This report provides an overview of the global and European contexts that contribute to shaping Portugal’s blue economy and its set-up to implement international and national ocean frameworks, strategies and legislation. It emphasises the need to strike a balance between conservation efforts and the use of ocean resources, and suggests using the 2030 Agenda for Sustainable Development and its 17 Sustainable Development Goals (SDGs) as a framework for ensuring coherent policymaking.
Recognising the importance of robust and future-proofed institutions, the report explores the unique role of Portugal’s Directorate-General for Natural Resources, Safety and Maritime Services (Direção-Geral de Recursos Naturais, Segurança e Serviços Marítimos, DGRM) – a maritime administration with varied and intersecting mandates. It aims to guide the DGRM in developing its Strategic Plan 2030, which is expected to be a key instrument for fostering a sustainable ocean economy in Portugal. Specifically, the report highlights key actions and governance tools to align the three pillars of Portugal’s National Ocean Strategy (NOS) 2021-2030: employment and sustainable blue economy, decarbonisation and renewable energies, and ocean digitisation.
The DGRM plays a pivotal role in advancing Portugal’s maritime strategy but faces critical gaps in resources, co-ordination and governance. Using the analytical framework provided by the OECD Recommendation on Policy Coherence for Sustainable Development (PCSD), this report evaluates the DGRM’s capacity and operations, applying an analytical lens to identify policy interlinkages across Portugal’s maritime sectors.
The report identifies both challenges and opportunities for the DGRM in managing Portugal’s maritime sectors, offering the following insights:
Governance challenges: The multi-dimensional mandate of the DGRM requires better integration and clarity of roles across ministries, particularly for managing complex policy domains such as maritime spatial planning, aquaculture, and flag state. A flag state is the country under whose laws a ship is registered and operates, granting it nationality and regulatory oversight. Co-ordination across ministries and agencies remains fragmented, slowing decision making and administrative processes.
Resource gaps: Staffing shortages, an ageing workforce and limited financial resources undermine the DGRM’s ability to meet growing operational demands. The estimated need for 90 new hires by 2030 reflects these pressing gaps.
Digitalisation challenges: Interoperability among systems remains generally weak, limiting the DGRM’s ability to harness its many data sources for making decisions, streamlining processes, and encouraging further stakeholder engagement.
To address these challenges and capitalise on opportunities, this report offers a detailed set of recommendations to address systemic issues and foster sustainable development, including those related to:
Enhanced policy coherence: Apply the principles of OECD Recommendation on Policy Coherence for Sustainable Development and relevant governance tools systematically to align national strategies with EU and international obligations, ensuring balanced and sustainable use of marine resources.
Governance and structural reform: Transition the DGRM to an agency model to enhance autonomy, capacity and responsiveness in handling complex mandates and inter-ministerial co‑ordination.
Capacity building: Invest in workforce expansion and upskilling, particularly in digital analytics, environmental monitoring and international representation.
Technological integration: Strengthen digital infrastructure to improve data interoperability and real-time decision-making capabilities, focusing on expanding platforms such as Balcão Eletrónico do Mar (Sea Electronic Counter) (BMar).
Process simplification: Simplify administrative processes and regulatory systems to increase users’ satisfaction and sustainability across ocean activities.
The DGRM’s Strategic Plan 2030 provides a pivotal opportunity for Portugal to reinforce its leadership in sustainable ocean management. By addressing governance, resource and co-ordination challenges, the DGRM can effectively align its activities with the objectives set out in the National Ocean Strategy 2030, at the EU level, and in the United Nations 2030 Agenda for Sustainable Development. Continued stakeholder engagement and alignment with international best practices will be essential for long-term success.
The report consists of five chapters:
Chapter 1 details the global, European and Portuguese ocean context and describes Portugal’s ocean vision and strategies to achieve sustainability. It reviews the DGRM’s role in the broader Portuguese policy and regulatory context, and identifies key opportunities and challenges faced by the DGRM as a critical policy and operational actor in the Portuguese blue economy.
Chapter 2 focuses on internal governance issues and describes the DGRM’s status, organisational set-up, and human and financial resources. It also identifies the operational limitations it faces due to the multiplication of its missions. Furthermore, it highlights the importance of improving co-ordination with other entities and addressing urgent issues related to new required digitalisation processes.
Chapter 3 applies the OECD PCSD Recommendation to three maritime areas of priority to Portugal: maritime spatial planning, aquaculture, and flag state, with practical considerations for enhancing the DGRM’s operations to strengthen policy coherence for sustainable development.
Chapter 4 summarises the main findings and provides actionable recommendations to support the DGRM’s transformation as part of the development of its Strategic Plan 2030 and, ultimately, to ensure more sustainable ocean management in Portugal.
Chapter 5 concludes with suggestions for future action and identifies opportunities for peer learning with other countries.
This report is the result of a collaborative effort between the OECD, the European Commission and Portuguese stakeholders, which involved a two-year engagement involving workshops, interviews and focus groups to ensure inclusivity and actionable insights. Methods include desk research, stakeholder interviews and case studies in aquaculture, maritime spatial planning, and flag state responsibilities. This comprehensive approach has played an important role in developing the recommendations that conclude this report, ensuring that they are needs-based and informed by evidence.
