NATIONAL STRATEGY
Portugal’s energy sector policy aims to decarbonise the energy supply and reduce energy import dependency primarily through broad electrification and a rapid expansion of renewable electricity generation, along with increased energy efficiency. The Directorate-General for Energy and Geology (DGEG), within the Ministry for the Environment and Energy, has the main responsibility for the development and implementation of policies, regulation, control and knowledge for energy-related activities, while the Directorate-General for Natural Resources, Safety and Maritime Services (DGRM), within the Ministries for Agriculture and Sea and Infrastructures, has similar responsibility for sea-related ones.
National strategy concerning offshore renewable energy follows the Industrial Strategy and Action Plan for Ocean Renewable Energy (EI-ERO, published in 2017), the Roadmap for Carbon Neutrality 2050 (RNC 2050, published in 2019), and the National Energy and Climate Plan 2030 (PNEC 2030, published in 2020, and reviewed as approved in 2025). PNEC 2030 is a key national instrument of national energy and climate policy for the decade. In conjunction with other instruments such as the National Strategy for Hydrogen, published in 2020, the latest version calls for GHG emissions reductions of 55% by 2030 versus 2005 levels, including the targets of assigning 2 GW of offshore wind and 0.2 GW of waves installed capacity until 2030.
To attain these targets, the Situation and Ordering Plan of the National Maritime Space (PSOEM) was automatically updated in 2025 with the approval of the offshore Renewable Energy Allocation Plan (PAER, via Resolution of the Council of Ministers No. 19/2025). PAER defined maritime areas located offshore the Portuguese continental coast for the deployment of renewable power plants at commercial level of technology development. Despite being technology neutral, in total these areas were sized to accommodate 9,4 GW of floating offshore wind, a technology compatible with local bathymetry data and expected to attain maturity sooner than waves energy technology.
According to statements from the Minister in charge of Environment and Energy, a subset sized to 2 GW has been announced for the first offshore wind energy auction. Governmental Dispatch No. 4752/2025 determined in 2025 that the auction would follow a centralized sequential model, expectedly to be initiated by the offering of seabed rights for area studies. The same Dispatch created a working group that made recommendations on which areas from PAER would be made available for 2 GW deployment and on details of the design of the auction, particularly the pre-qualification stage. The initial auction framework, enabled by PAER, is expected to pave the way for the development of wave energy, even more if following NZIA indications regarding non-price criteria on energy system integration and innovation.
In 2022 the government introduced Decree-Law No. 15/2022, outlining the organization and operation of the National Electric System (SEN), namely transposing 2018/2001 EU Directive (on the promotion and use of renewable energy), with simplified regulation for hybridisation and storage. Additionally, this decree established Technological Free Zones (ZLT) in the energy area, including one devoted to offshore renewables, covering 7.63 km2 located 17 km off Viana do Castelo city, at the continental coast (coordinates defined via Order No. 298/2023). This offshore test zone is strategically located next to WindFloat Atlantic project, Europe’s pioneering floating wind farm. DGEG is assigned as the managing entity of energy related ZLTs and, in 2025, the regulation for ZLT near Viana do Castelo was published via Order No. 96/2025/1.
National Strategy for the Sea 2021-2030
Portugal’s energy sector policy is acknowledged and complemented across other sectors. The National Strategy for the Sea 2021–2030, released in 2021 by the Directorate-General for Sea Policy (DGPM), currently under the Ministry for Agriculture and Sea, aims to enhance the contribution of the ocean to Portugal’s economy and promote a healthy ocean that increases the welfare of the Portuguese people. It centers around 10 objectives, including combatting climate change, decarbonizing the economy and promoting renewable energy, stimulating scientific knowledge, technological development and blue innovation. The corresponding Action Plan was published in September 2021 containing over 180 concrete measures to execute until 2030, for each area, including relevant actions for Marine Renewable Energies. In 2025, two reports monitoring the National Strategy were published, presenting statistics for 2023 and 2024 for services and value of the blue economy.
The ENM 2030 and the Action Plan can be assessed at: https://www.dgpm.mm.gov.pt/enm-21-30
Atlantic Strategy – Supporting the Atlantic Action Plan
Portugal, Spain, Ireland and France are represented in the Atlantic Strategy Committee (ASC). The ASC is the governing body of the Atlantic Strategy adopted in 2011 by the European Commission in response to repeated calls from stakeholders for a more ambitious, open and effective cooperation in the Atlantic Ocean Area. In this context, the Atlantic Action Plan 2.0 was approved aiming to unlock the potential of the sustainable Blue Economy in the Atlantic area while preserving marine ecosystems and contributing to climate change adaptation and mitigation of environmental hazards. The new action plan includes four pillars, one of which is on Marine Renewable Energy. As part of the coordination of Pillar IV - Healthy Oceans and Resilient Coasts activities, in 2025 Portugal hosted the stakeholder engagement event ‘From the Atlantic to the Mediterranean: Coastal Resilience & a Healthy Ocean’, focusing synergies between the Sea Basin Strategies, the Ocean Pact, and the Atlantic Pillar IV.
More information: https://atlantic-maritime-strategy.ec.europa.eu/ en/news/2025-implementation-report
European Marine Energy Board (ENB)
The European Marine Board is the leading European think tank in marine science policy. It provides a platform to advance marine research and to bridge the gap between science and policy. The European Marine Board is a unique strategic pan-European Forum for seas and ocean research and technology. As an independent, self-sustaining, non-governmental advisory body, the European Marine Board transfers knowledge between the scientific community and decision makers, promoting Europe’s leadership in marine research and technology.
In 2022, the EMB activity was focused on preparing an update on status and recommendations related to marine renewable energy, highlighting the current knowledge and research gaps in marine science. This publication was released in 2023.
In 2023, the European Marine Board released a report titled “European Offshore Renewable Energy: Towards a Sustainable Future”. This report was prepared by a working group formed by members from Greece, Ireland, UK, Italy, France, Norway and Portugal (represented by WavEC). The report emphasizes the urgent need for responsible and sustainable management of the offshore renewable sector, providing a comprehensive overview of the technical, environmental, and socioeconomic aspects of the offshore renewable sector, with a specific focus on the European context. The Impact Report released in 2025 indicates how such publication has been widely cited in academic and grey literature and acknowledged its usefulness by OES and the EC.
Maritime Spatial Planning Policy - National Maritime Spatial Plan (PSOEM)
The Maritime Spatial Plan covers the entire national maritime space, from the baselines to the outer limit of the continental shelf, integrating inland maritime waters, the territorial sea, the exclusive economic zone and the continental shelf, including beyond 200 nautical miles. National legislation on the management of the maritime space is published in Law No. 17/2014 and Decree-Law No. 38/2015.
The Maritime Spatial Plan (PSOEM) is an instrument for planning the national maritime space and constitutes an essential tool for the policy of the sea. This plan, PSOEM, identifies existing uses/activities and exclusion areas. Potential uses/activities are incorporated in the Allocation Plan. The Allocation Plan is the instrument that allows the attribution of a Permit of Private Use of National Maritime Space (TUPEM). Once approved, it becomes integrated into PSOEM.
In 2022, after the public announcement by the government of their intention to launch auctions for 10 GW offshore wind, it was decided to review the PSOEM for the integration of potential areas for offshore renewable energies, both for commercial and research projects. After an extensive public consultation process, in 2025 the Allocation Plan for offshore Renewable Energy was approved (PAER, Resolution of the Council of Ministers No. 19/2025) and potential areas for commercial exploitation of 9,4 GW of renewable energy in the national maritime space along the western coast of mainland Portugal were integrated in PSOEM. The definition of these areas also required a plan for the development of port and grid infrastructures, namely with identification of connection points to the electrical grid, and the establishment of procedures for offshore renewable energy bids (e.g. as determined by Dispatch No. 11404/2022 and Dispatch No. 4752/2025).
In addition to maritime space for commercial exploitation of renewable energy, PAER also defined areas for developing technologies, acknowledging those already present in PSOEM (ZLT off Viana do Castelo, Aguçadoura and Peniche) and enlarging into 5,6 km2 the area off Aguçadoura.
Permits for Private Use of the National Maritime Space (TUPEM)
The right to privately use the national maritime space is granted by concession, license, or authorization, formalized in the form of ‘permits of private use of the maritime space’, briefly TUPEM. The authority responsible for TUPEM approval is the Directorate-General for Natural Resources, Safety and Maritime Services (DGRM), which shall ensure the consultation of other public services and bodies.
Whenever TUPEM is associated with the use or activity related to geological resources, energy resources and renewable energy, including their infrastructure, the Directorate-General of Energy and Geology (DGEG) is the coordinator of the entire licensing process. The request for TUPEM is submitted online at DGRM website.
There are different TUPEM modalities according to the duration of the deployment and type of activity. For scientific research, or non-commercial pilot projects installed for a maximum of 10 years, just an authorization is required. It can be issued for any location in the Portuguese maritime space, provided no other conflicting activity is already there located.
PUBLIC FUNDING PROGRAMMES
Foundation for Science and Technology (FCT)
The Foundation for Science and Technology (FCT) is a national funding agency under the responsibility of the Ministry for Science, Technology and Higher Education whose mission is to boost Portugal’s RD&D capabilities in all scientific fields. FCT provides RD&D funding through several programmes, including tenders for RD&D projects, grants, scholarships, support of public-private RD&D collaboration and direct funding of public research institutions.
In 2023, FCT became a participant in the inaugural co-funded call of the Sustainable Blue Economy Partnership (SBEP). This initiative involves 36 funding organizations across 23 countries, collectively supporting research and innovation actions in the blue economy, with financial support from the European Commission. Its strategy takes into consideration the R&I agendas of the sea basins (Mediterranean, Black Sea, Baltic and North Sea) and the Atlantic Ocean and builds on lessons learned from previous initiatives (e.g. OCEANERA-NET).
National Innovation Agency (ANI)
The National Innovation Agency (ANI) is a state-owned agency supporting technology and business innovation to strengthen Portugal’s competitiveness in global markets. The ANI’s responsibilities include stimulating private RD&D investment, promoting partnerships between Portugal’s RD&D entities and industry, and increasing the participation of Portugal’s RD&D entities and industry in international RD&D programmes.
ANI also runs the Interface Programme that certifies and funds Technological Interface Centres in several areas including renewable energies, using FITEC - Innovation, Technology and Circular Economy Fund that aims to support policies to enhance scientific and technological knowledge and its transformation into innovation.
Directorate-General for Maritime Policy (DGPM)
DGPM is a public administration body of the Ministry of the Sea responsible for developing, evaluating and updating the National Ocean Strategy, designing and proposing the national maritime policy, developing the maritime spatial planning strategy and management, monitoring and participating in the development of the Integrated Maritime Policy of the European Union and promoting national and international cooperation on maritime affairs. DGPM is currently engaged in a variety of scientific marine and maritime research topics (including socio-economy sciences related to the Ocean, monitoring of the Blue Economy, and monitoring of the Portuguese contribution to the UN SDG 14 Goal), but also in Ocean Literacy and translational aspects between academia and industrial sectors.
DGPM is a national operator of the EEA and Nor way Grants, operating the Blue Growth Programme. Its main objective is to increase value creation and sustainable growth in the Portuguese blue economy, and to promote research, education and training in marine and maritime areas. In 2025 Iceland, Liechtenstein and Norway have signed a new cooperation agreement with Portugal for the EEA and Norway Grants 2021–2028 period.
More information: EEA Grants - Blue Growth Programme
Update: May 2021
MARINE SPATIAL PLANNING POLICY
The Marine Spatial Planning (MSP) policy is used as a decision-making tool.
The Portuguese MSP was adopted in 2019 and includes zones for ocean energy development. The MSF Directive was transposed into Portuguese law in DL 38/2015 (amended by the DL 139/2015), laying down the basis for the Planning and Management of the National Maritime Space (LBOGEM). It defines the legal framework that allows for the implementation of MSPs in the whole national maritime space, from the baselines until the extended continental shelf (beyond 200 nm). The MSP system consists of a set of instruments developed under two complementary action levels:
A preliminary baseline for the SP has been developed under the POEM, which has therefore established the situation reference for the MSP in the continent subdivision. DGRM is responsible for the coordination of the MSP. The Allocation Plans are submitted to EIA, whereas a SEA is mandatory for the SP. In 2019, the National Maritime Spatial Plan (PSOEM) was approved establishing the licensing regime for private use of the maritime space including marine renewable energies.
AUTHORITIES INVOLVED
The authorities involved in the consenting process are:
• Portuguese Environmental Agency (APA);
• Coordination Committee on Regional Development (CCDR);
• Energy and Geology Directorate-General (DGEG);
• Portuguese Electricity Utility (EDP);
• Directorate General for Natural Resources, Safety and Maritime Services (DGRM)
CONSENTING PROCESS
The licensing process of marine renewable energies projects in Portugal requires the following components articulated between each other:
DGEG is the licensing entity for projects with a power capacity of up to 10MW. Above 10MW the member of the Government responsible for the energy sector is the licensing authority. The licensing authority coordinates the entire licensing process, articulating the link with the various authorities involved in the process. It is therefore by the licensing authority that all procedures are developed from the delivery of the application elements to the communication of decisions and delivery of licenses to the developer.
ENVIRONMENTAL IMPACT ASSESSMENT
As per the recent amendment of DL 215-B/2012 through DL 76/2019, MRE projects not covered in the RJAIA are subject to an AIncA procedure only if located within Natura 2000 Network. If the project is not subject to an AIA or AIncA, the developer may proceed in the licensing procedure provided favourable advice on the project installation on the proposed location is submitted to the regional authority (CCDR). The entity responsible for the decision on whether an EIA/EIncA is required is the CCDR if it is a license, or APA if it is a concession.
Since the scoping phase is not mandatory, the EIA procedure starts with a screening phase to decide whether the project is subject to an AIA. If an MRE project is listed under Annex II of RJAIA, a full AIA is required, and APA is the licensing authority. In the case of MRE projects not listed under Annex II of RJAIA, i.e., with a capacity below 50 MW (or below 20 MW when located in sensitive areas) or wind farm projects with less than 20 wind turbines (or less than 10 wind turbines when located in sensitive areas) a case-by-case screening procedure is carried out.
The baseline survey is usually made through desk-based studies although some developers of the few projects that have been installed in Portugal have carried out some baseline studies as required in the declaration of the EIA.
Monitoring is usually part of the EIA declaration issued as part of the environmental license. In Portugal the onerous post-deployment monitoring have been required for some marine renewable energy projects. Evidences should be given in periodic reports that monitoring in being carried out, and its results are usually analyzed by the Portuguese Institute for Nature Conservation (ICNF). Both the issuance of the TUPEM and production license requires a favourable or conditionally favourable Environmental Impact Statement (DIA) and, when required, a favourable or conditionally favourable Decision on the Environmental Compliance of the Detailed project design (DCAPE) or, if applicable, a favourable or conditionally favourable Environmental Appraisal Statement (DIncA).
LEGISLATION AND REGULATION
Whilst there is no over-arching dedicated consenting system for ocean energy, all the required consents have been adapted to better suit wave energy developments. One of the most relevant regulations in the consenting process of Portugal is the recently updated Decree Law 76/2019 , which sets the legal regime applicable to the exercise of electricity production, transport, distribution and marketing activities and the organisation of electricity markets. Project developers must obtain the following six consents before installing a project: i) concession, license or authorisation for the private use of marine space (TUPEM ); ii) Reserve capacity; iii) Production license; iv) Exploration license; v) accessory facilities onshore and vi) Environmental Impact Assessment. A developer can apply for all licenses at the same time, however, the procedure to obtain each of these licenses is sequential and there are legally prescribed time frames for each step of the procedure.
For projects with a power capacity up to 10 MW, DGEG is the authority in charge of licensing electricity production linking with other authorities for specific permits: The Directorate General for Natural Resources, Safety and Maritime Services (DGRM) for the TUPEM, CCDRs or APA for the environmental license and local city hall for onshore facilities.
The reserve capacity is a title issued by the grid operator (EDP Distribuição), with the requested power capacity on behalf of the applicant and encompasses a production license and an operation license. Obtaining the capacity reserve title is a necessary but not enough condition of the licensing process. After guaranteeing a reserve capacity in the grid, the applicant must submit the Production License application followed by an Exploration License application, to DGEG.
The procedure to obtain the TUPEM will depend on the designation of the use in the area where the project is to be installed, which is established in the Situation Plan (PS), the instrument setting the baseline for the national MSP. If the area to be used by the project is already designated for renewable energy production, the application for obtaining TUPEM is carried out directly by DGRM. If the area to be used by the project is not designated for MRE production activity, the developer may propose the amendment of its designation by submitting an Allocation Plan, which, if approved, automatically changes the PS through Council Minister´s Resolution.
Consultation is usually required as part of the legal licensing process. It is usually made after the EIS is delivered to the authorities for approval. Advices are asked by the licensing authority to several statutory consultees namely Institute of Nature Conservation, port authorities and several public authorities responsible for marine resources management. There are informal consultation activities implemented by the developers during the licensing process.
CONSULTATION
Consultation is usually required as part of the legal licensing process. It is usually made after the Environmental Impact Statement is delivered to the authorities for approval.
Advices are asked by the licensing authority to a number of statutory consultees namely the Institute of Nature Conservation, port authorities and a number of public authorities responsible for marine resources management.
There are informal consultation activities implemented during the licensing process: usually, developers prepare a number of informal public events to disseminate the project and collect public feedback on their activities at sea.
GUIDANCE AND ADVICE
Guidance on the consenting process was produced and published by WavEC Offshore Renewables in 2016. It is currently being reviewed and updated.
TEST CENTERS
There are two test sites in Portugal:
