《經合組織&歐盟：2025提升葡萄牙海洋經濟政策協調性：自然資源、安全與海事服務戰略規劃報告（英文版）（86頁）.pdf》由會員分享，可在線閱讀，更多相關《經合組織&歐盟：2025提升葡萄牙海洋經濟政策協調性：自然資源、安全與海事服務戰略規劃報告（英文版）（86頁）.pdf（86頁珍藏版）》請在三個皮匠報告上搜索。

1、Improving Policy Coherence for Portugals Ocean EconomyA Strategic Plan for Natural Resources,Safety and Maritime ServicesImproving Policy Coherence for Portugals Ocean Economy A Strategic Plan for Natural Resources,Safety and Maritime ServicesImproving Policy Coherence for Portugals Ocean EconomyA S

2、TRATEGIC PLAN FOR NATURAL RESOURCES,SAFETY AND MARITIME SERVICESThis document was produced with the financial assistance of the European Union.The views expressed herein can inno way be taken to reflect the official opinion of the European Union.This document,as well as any data and map included her

3、ein,are without prejudice to the status of or sovereignty overany territory,to the delimitation of international frontiers and boundaries and to the name of any territory,city or area.Please cite this publication as:OECD(2025),Improving Policy Coherence for Portugals Ocean Economy:A Strategic Plan f

4、or Natural Resources,Safety and Maritime Services,OECD Publishing,Paris,https:/doi.org/10.1787/0b539499-en.ISBN 978-92-64-61704-9(print)ISBN 978-92-64-35335-0(PDF)ISBN 978-92-64-57281-2(HTML)Photo credits:Cover yari2000/S.Corrigenda to OECD publications may be found at:https:/www.oecd.org/en/publica

5、tions/support/corrigenda.html.OECD 2025 Attribution 4.0 International(CC BY 4.0)This work is made available under the Creative Commons Attribution 4.0 International licence.By using this work,you accept to be bound by the terms of this licence(https:/creativecommons.org/licenses/by/4.0/).Attribution

6、 you must cite the work.Translations you must cite the original work,identify changes to the original and add the following text:In the event of any discrepancy between the original work and the translation,only the text of original work should be considered valid.Adaptations you must cite the origi

7、nal work and add the following text:This is an adaptation of an original work by the OECD.The opinions expressed and arguments employed in this adaptation should not be reported as representing the official views of the OECD or of its Member countries.Third-party material the licence does not apply

8、to third-party material in the work.If using such material,you are responsible for obtaining permission from the third party and for any claims of infringement.You must not use the OECD logo,visual identity or cover image without express permission or suggest the OECD endorses your use of the work.A

9、ny dispute arising under this licence shall be settled by arbitration in accordance with the Permanent Court of Arbitration(PCA)Arbitration Rules 2012.The seat of arbitration shall be Paris(France).The number of arbitrators shall be one.3 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2

10、025 Foreword Portugal is one of the European Unions largest coastal states,holding jurisdiction over approximately half of the European Unions marine waters and a vast expanse of seabed and subsoil in the Northeast Atlantic.The country plays a pivotal role in promoting ocean sustainability and gover

11、nance,both within the European Union and on the global stage.The importance of achieving Sustainable Development Goal 14,Life Below Water,cannot be understated.It will require policy coherence across sectors,levels of governance and the different uses of ocean resources.This report is the final outp

12、ut of the project“22PT18 Development of a Strategic Plan for Decarbonisation,Digitisation,and Sustainable Blue Economy for the Port-Maritime and Fisheries Sectors and Maritime Spatial Planning and Marine Sustainability”.It sets out a path for Portugal to harness its ocean economy to foster sustainab

13、le use of national and international marine resources,including recommendations for enhancing policy coherence for sustainable development to 2030 and beyond.In doing so,the report calls on the Portuguese ocean administration to systematically identify and address policy interactions,optimise synerg

14、ies and minimise trade-offs,and consider the impacts of domestic policies on other countries.The main beneficiary of this project is the Directorate-General for Natural Resources,Safety and Maritime Services(Direo-Geral de Recursos Naturais,Segurana e Servios Martimos,DGRM)under the Ministry of Econ

15、omy and Maritime Affairs,the Ministry of Infrastructure and Housing,and the Ministry of Agriculture and Food in Portugal.The DGRM faces challenges and opportunities in strengthening policy coherence and co-ordination across its many mandates,including improving internal governance and organisational

16、 set-up,increasing the availability of human and financial resources,and keeping up with fast-paced digitalisation.The project has been shaped by an inclusive process,with continuous involvement of government and non-government stakeholders over the past two years.Several activities have helped to e

17、nsure ownership and buy-in of the findings,including a multi-stakeholder kick-off meeting and focus group discussions in March 2023 to identify key issues and priorities;fact-finding interviews throughout 2023 to fill research gaps;validation of policy options by different branches of government and

18、 private sector representatives;and multi-stakeholder workshops in the second quarter of 2024 to define collective input to the new Strategic Plan of the DGRM.The project was funded by the European Union via the Technical Support Instrument,and implemented by the OECD,in co-operation with the Europe

19、an Commission.4 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Acknowledgements The report was produced by the OECDs Public Governance Directorate(GOV)and the Directorate for Science,Technology and Innovation(STI)in collaboration with the Environment Directorate(ENV)and the Trade a

20、nd Agriculture Directorate(TAD).It was co-ordinated and drafted by the Policy Coherence for the Sustainable Development Goals Division in GOV(Tatyana Teplova,Ernesto Soria Morales,Carina Lindberg,Nina Lenglinger and Anna Piccinni);the Innovation Policies for Space and the Ocean Unit in STI(Claire Jo

21、lly);with inputs from ENV(co-ordination by Rebecca Belocchi);and the Agriculture and Resource Policies Division in TAD,in collaboration with Forum Oceano and with support from national experts on blue economy(Miguel Marques).The OECD would like to thank the Government of Portugal for its engagement

22、and commitment during the 24 months of implementation.This report is the result of close collaboration with the Directorate-General for Natural Resources,Safety and Maritime Services(Direo-Geral de Recursos Naturais,Segurana e Servios Martimos,DGRM).In particular,the OECD would like to thank Anabela

23、 Delgado and Cidalia Santos for their continued commitment to this process.The OECD also acknowledges the valuable contributions from the DGRMs experts,Paulo Pamplona,Jos Manuel Marques,Andr Couto,Cristina Rosa,and Rui Oliveira,as well as the steering role of the DGRM Board,led by Director-General J

24、os Simo.The OECD also interviewed a number of civil society and private sector representatives.The authors would like to express their appreciation to all these stakeholders for their availability and insights.The project was funded by the European Union via the Technical Support Instrument,and impl

25、emented by the OECD,in co-operation with the European Commission.The OECD is deeply grateful for the continuous support of the European Commission Reform and Investment Task Force(SG.REFORM)formerly DG REFORM,in particular Ana Medeiros and Mauro Sibilia.Their commitment and guidance throughout this

26、process have been invaluable.5 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Table of contents Foreword 3 Acknowledgements 4 Abbreviations and acronyms 7 Executive summary 10 1 Portugals ocean economy in a rapidly changing world 13 A global goal for Life Below Water(SDG 14)14 Ocea

27、n priorities in the European Union 16 Portugals ocean vision and strategies to achieve a sustainable blue economy 17 Ensuring the coherent implementation of global,European and Portuguese ocean policies 17 Developing a strategic framework for sustainable ocean management to 2030 19 Applied framework

28、s and methodologies 22 Annex 1.A.Portugals economic and environmental profile 26 References 27 2 Institutional opportunities for strengthening policy coherence in Portugals blue economy 29 The Directorate-General for Natural Resources,Safety and Maritime Services unique role as a maritime administra

29、tion with many mandates 30 The DGRMs governmental status and organisational set-up 31 The DGRMs human and financial resources 32 Key challenges 35 References 37 Notes 38 3 Applying a policy coherence lens to aquaculture,maritime spatial planning,and flag state in Portugal 39 Introducing the three pi

30、lot areas 40 Maritime spatial planning 40 Aquaculture 44 Flag state 49 Annex 3.A.Policy tools to take the SDGs into account in the DGRMs current processes 53 References 53 4 Recommendations for enhanced policy coherence in Portugals ocean economy 58 Introducing the recommendations 59 Recommendation

31、1.Systematically apply a policy coherence lens based on the OECD Recommendation on Policy Coherence for Sustainable Development 59 6 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Recommendation 2.Modify the DGRMs organisational setting from a directorate-general to an agency 61 Re

32、commendation 3.Reinforce human resources and financial resources 63 Recommendation 4.Reinforce information systems for analytical capacities(impact assessment and monitoring,reporting and evaluation)63 Recommendation 5.Reinforce the DGRMs role as a one-stop-shop for maritime services 64 Recommendati

33、on 6.Specific recommendations to boost operational efficiencies in maritime spatial planning,aquaculture,and flag state priority areas 65 Annex 4.A.Licensing:Aquaculture Activity Titles 75 Annex 4.B.Licensing renewable energy activity 78 Annex 4.C.Environmental impact assessments 79 References 80 5

34、Way forward for Portugals Natural Resources,Safety and Maritime Services 82 7 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Abbreviations and acronyms AICEP Agncia para o Investimento e Comrcio Externo de Portugal(Portuguese Investment and Foreign Trade Agency)AMN Agncia Martima N

35、acional(National Maritime Authority)APA Agncia Portuguesa do Ambiente(Portuguese Environmental Agency)APAs Aquaculture production areas BMar Balco Eletrnico do Mar(Sea Electronic Counter)CFP Common Fisheries Policy CIAM Inter-Ministerial Commission for Sea Affairs DGAV Directorate-General for Food a

36、nd Veterinary DGPM Directorate-General for Maritime Policy DGRM Direo-Geral de Recursos Naturais,Segurana e Servios Martimos(Directorate-General for Natural Resources,Safety and Maritime Services)EIA Environmental impact assessment EMFAF European Maritime,Fisheries and Aquaculture Fund ENAAC 2020 Na

37、tional Strategy for Adaptation to Climate Change 2020 ESG Environmental,social,and corporate governance EU European Union EU ETS European Union Emissions Trading System EU IMP EUs Integrated Maritime Policy FO Forum Oceano GDP Gross domestic product GES Good Environmental Status GVA Gross value adde

38、d 8 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 HLPF High-level political forum ICNF Instituto da Conservao da Natureza e das Florestas(Portuguese Institute for Nature Conservation and Forests)IMO International Maritime Organization IMTA Integrated multi-trophic aquaculture INE

39、Instituto Nacional de Estatstica(Statistics Portugal)IPMA Instituto Portugus do Mar e da Atmosfera(Portuguese Institute for Sea and Atmosphere)IPIMAR National Institute of Biological Resources IUU Illegal,unreported and unregulated LUA Single environmental licensing scheme MARPOL International Conve

40、ntion for the Prevention of Pollution from Ships MLC2006 Maritime Labour Convention MPAs Marine-protected areas MONICAP Fishing Activity Continuous Monitoring System MSFD EU Marine Strategy Framework Directive MSP Maritime spatial planning MSPD EU Maritime Spatial Planning Directive NATO North Atlan

41、tic Treaty Organization NOS 2030 National Ocean Strategy 2021-2030 OP Operational programme OSA Ocean satellite account OSPAR Convention for the Protection of the Marine Environment of the North-East Atlantic PAqAT Plano para Aquicultura em guas de Transio(Plan for Aquaculture in Transitional Waters

42、)PCM Presidency of the Council of Ministers PCSD Policy Coherence for Sustainable Development PEA Plano Estratgio para a Aquicultura Portuguesa 2021-2030(Strategic Plan for Portuguese Aquaculture 2021-2030)PIAs Priority intervention areas PlanAPP Competence Centre for Planning,Policy and Foresight o

43、f the Public Administration 9 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 PNEC 2030 National Energy and Climate Plan 2030 PNPOT Programa Nacional da Poltica de Ordenamento do Territrio(National Programme for Territorial Planning Policy)POEM Allocation Plan PSOEM Situation Plan-M

44、aritime Spatial Plan R&D Research and development PNR National Reform Plan RRP Recovery and Resilience Plan(Plano de Recuperao e Resilincia)SDGs Sustainable Development Goals SG REFORM Reform and Investment Task Force SIFICAP Fishing Activities Inspection and Control System SILiAmb Sistema Integrado

45、 de Licenciamento do ambiente(Integrated Environmental Licensing System)SNEM Sistema Nacional de Embarcaes e Martimos(National Ship and Seafarer System)SOLAS International Convention for the Safety of Life at Sea TAA Aquaculture Activity Title TUA Single environmental permit UN United Nations VNR Vo

46、luntary National Review 10 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Executive summary Todays 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 s

47、uch as the ocean.This report provides an overview of the global and European contexts that contribute to shaping Portugals 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 e

48、fforts 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 rol

49、e of Portugals Directorate-General for Natural Resources,Safety and Maritime Services(Direo-Geral de Recursos Naturais,Segurana e Servios Martimos,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

50、 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 Portugals National Ocean Strategy(NOS)2021-2030:employment and sustainable blue economy,decarbonisation and renewable energies,

51、and ocean digitisation.The DGRM plays a pivotal role in advancing Portugals 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 evaluat

52、es the DGRMs capacity and operations,applying an analytical lens to identify policy interlinkages across Portugals maritime sectors.The report identifies both challenges and opportunities for the DGRM in managing Portugals maritime sectors,offering the following insights:Governance challenges:The mu

53、lti-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

54、 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 DGRMs ability to meet growing operational d

55、emands.The estimated need for 90 new hires by 2030 reflects these pressing gaps.Digitalisation challenges:Interoperability among systems remains generally weak,limiting the DGRMs ability to harness its many data sources for making decisions,streamlining processes,and encouraging further stakeholder

56、engagement.11 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 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 coh

57、erence: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 refor

58、m: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 repres

59、entation.Technological integration:Strengthen digital infrastructure to improve data interoperability and real-time decision-making capabilities,focusing on expanding platforms such as Balco Eletrnico do Mar(Sea Electronic Counter)(BMar).Process simplification:Simplify administrative processes and r

60、egulatory systems to increase users satisfaction and sustainability across ocean activities.The DGRMs 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 ca

61、n 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 succes

62、s.The report consists of five chapters:Chapter 1 details the global,European and Portuguese ocean context and describes Portugals ocean vision and strategies to achieve sustainability.It reviews the DGRMs role in the broader Portuguese policy and regulatory context,and identifies key opportunities a

63、nd 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 DGRMs status,organisational set-up,and human and financial resources.It also identifies the operational limitations it faces due

64、 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:

65、maritime spatial planning,aquaculture,and flag state,with practical considerations for enhancing the DGRMs operations to strengthen policy coherence for sustainable development.Chapter 4 summarises the main findings and provides actionable recommendations to support the DGRMs transformation as part

66、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

67、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 planni

68、ng,and flag state responsibilities.This 12 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 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.13 IMPROVING POLICY

69、COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 This chapter explores the global and European context in which Portugals ocean economy is evolving.This includes the 2030 Agenda for Sustainable Development,in particular,Sustainable Development Goal 14(Life Below Water),at the global level and a numbe

70、r of ocean frameworks and directives at the European level.Against this background,it provides an overview of Portugals ocean vision and strategies to achieve sustainability and introduces the institutional set-up for fostering a blue economy in the broader Portuguese policy and regulatory context.1

71、 Portugals ocean economy in a rapidly changing world 14 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 A global goal for Life Below Water(SDG 14)The ocean is an essential global resource for sustainable development and human well-being.The 2030 Agenda for Sustainable Development an

72、d the 17 Sustainable Development Goals(SDGs),adopted in September 2015 by the United Nations(UN)General Assembly,put the ocean high on the international political agenda.For the first time,a global development goal specifically targets the ocean:SDG 14 calls for the“conservation and sustainable use

73、of the oceans,seas and marine resources for sustainable development”(United Nations,20151).This goal reflects the potential of a sustainable ocean economy1 as a means to progress many of the 17 SDGs.A new report by the OECD,however,suggests that while the past twenty-five years have shown a resilien

74、ce of ocean economic activities,with most ocean industries outpacing the growth of other industries,the ocean economy is expected to suffer in the next decades from major shaping forces,including the deterioration of the ocean environment and accelerated climate change(OECD,20252).The global ocean e

75、conomy is considerably larger than previously thought and grew resiliently for the past 25 years,based on new OECD datasets and analytical tools on the global ocean economy.Initially considered to be worth around 2.5%of world gross value added(OECD,20163),the ocean economy accounted for around 3.4%o

76、f the world economy in 2019,employing over 133 million full-time equivalents that year and supporting job growth,especially in developing regions.If the ocean economy were a country,it would rank as the fifth-largest economy globally and this estimate only considers ocean economic activities,not cru

77、cial marine ecosystems and the services they provide.The ocean economy has doubled in real terms in 25 years,growing from 1.3 trillion USD in 1995 to 2.6 trillion USD in 2020 in gross value-added(OECD,20252).SDG 14 explicitly aims to balance the use and conservation of the ocean:the two pillars of t

78、he ocean economy are interdependent in that much activity associated with ocean-based industry is derived from marine ecosystems,while industrial activity often impacts marine ecosystems.Since the 2030 Agenda was established in 2015,two UN Ocean Conferences have taken place(in New York in 2017 and L

79、isbon in 2022).The next one is planned in Nice in June 2025,with the aim to gather stakeholders and collectively move the ocean further up policy agendas.Sustainable ocean economies are intrinsically connected with many other SDGs and are key to achieving economic,social and environmental sustainabi

80、lity,as shown in Table 1.1(Chapter 1).Governments need to strengthen their capacity to balance competing interests and address fundamental trade-offs between conservation and use of ocean resources.For instance,the expected acceleration of off-shore wind farm activities could spur the achievement of

81、 SDG 7(renewable energy production)while potentially generating a negative impact on other SDGs related to ocean conservation(SDG 14)and income generation(SDG 8)by limiting access to fishing areas or reducing the attractiveness of tourism and recreational facilities(OECD,20234).Further,sustainable m

82、arine aquaculture(mariculture)is an important source of protein and food security and can contribute to feeding a growing global population,advancing progress on SDG 1(No Poverty)and SDG 2(Zero Hunger).New opportunities from marine-based renewable energy can create new jobs and steer the global ener

83、gy mix towards a greater share of clean energy,contributing to the achievement of SDG 8(Decent Work and Economic Growth)and SDG 13(Climate Action).The ocean holds an abatement potential of more than 20%of the emission reduction required to achieve a 1.5C trajectory by 2050(Ocean Panel,20205).Therefo

84、re,actions to preserve the oceans capacity to regulate the climate and support biodiversity can advance the achievement of SDG 13 with a positive impact on climate migration and peace and stability(SDG 16).The interlinkages and interdependences among targets of SDG 14(Life Below Water),as well as in

85、terrelationships between those targets and other SDGs,are well documented(Le Blanc,Freire and 15 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Vierros,20176),although management and regulation of ocean activities has been historically characterised by an ad hoc,sector-by-sector ap

86、proach,further increasing the pressures that unsustainable activities can create on ocean health.As a result,the combined pressures of rising sea levels and temperatures,acidification,pollution,overfishing and habitat loss threaten the health of the ocean and impact human well-being,livelihoods,soci

87、eties and the wider economy and security as resources are being altered(OECD,20234).Breaking out of sectoral silos and fostering greater coherence and collaboration in managing ocean resources and regulating ocean activities is fundamental to dealing with these pressures and avoiding social tensions

88、 that could arise from mismatching ocean-related social,economic and environmental considerations.By better managing policy interlinkages in relation to the ocean,policy making at the global,regional and national levels could strike the right balance between the need to protect the worlds oceans and

89、 seas and to unleash the great potential offered by ocean-based industries(OECD,20163).A sustained and high-level commitment is required to consider these interlinkages when administering public policies.Governments need the support of data,management tools,and governance instruments to weigh differ

90、ent groups interests and account for the multiple objectives of the ocean economy.As a growing number of countries prioritise a sustainable ocean economy,the Policy Coherence for Sustainable Development(PCSD)principles can inspire governments in formulating their ocean economy strategies and related

91、 governance arrangements.These strategies and arrangements can reconcile competing impacts on SDGs and socio-economic interests,as well as those on neighbouring and developing countries,while reducing overlaps and fragmentation across policies and stakeholders(OECD,20234).This project aims to suppor

92、t Portugal in formulating its ocean economy strategies and related governance arrangements along these lines.The Directorate-General for Natural Resources,Safety and Maritime Services(Direo-Geral de Recursos Naturais,Segurana e Servios Martimos,DGRM)s 2030 Strategic Plan(DGRM,20217)offers the opport

93、unity to express clear,long-term sustainability objectives and their interlinkages in key action areas within the DGRMs mandate,to which public policies and processes can align.Portugals alignment with the 2030 Agenda The Portugal 2030 Strategy embodies the Governments vision for Portugal up to 2030

94、 and is intended as a“general guidance framework for the definition and implementation of structural public policies”.It was developed by the Ministry of Planning and approved by the Council of Ministers in 2020.Although the strategy does not use the 2030 Agenda and its targets as a framework,it is

95、structured around the principle of Leaving No One Behind(LNOB)(eradicating discrimination and inequalities)and several goals(SDGs 1,2,3,7,8,9,10,12,13,14,16 and 17).Its purpose was to serve as a benchmark for various policy instruments,such as the Recovery and Resilience Plan(Plano de Recuperao e Re

96、silincia,RRP)(Ministry of Planning,20218)and the current EU Partnership Agreement 2021-2027(Portugal 2030)(Government of Portugal,20219),which represents the Multiannual Financial Framework(MFF)for the indicated period.With the purpose of materialising,in the medium term,the strategic guidelines def

97、ined in the Portugal 2030 Strategy,two high-level and transversal planning instruments came into force:the National Reform Programme(PNR)2023 and the Major Options Law(GO)for 2022-2026(Government of Portugal,202310).The National Reform Programme(PNR 2023)(Government of Portugal,202311)presents a det

98、ailed description by SDG of the main political measures and their estimated qualitative and quantitative impact.Alignment to the SDGs is further highlighted in the GO 2022-2026(Government of Portugal,202310),which links Portugals five strategic challenges to the SDGs.According to the latest Sustaina

99、ble Development Report on Portugal(2024)(Sachs et al.,202412),Portugal achieved an overall SDG Index Score of 80.22/100 in its progress towards achieving the SDGs,16 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 scoring particularly high on SDG 1(No Poverty),SDG 5(Gender Equality)

100、and SDG 6(Clean Water and Sanitation).However,regarding SDG 14(Life Below Water),the report concluded that major challenges remain for Portugal.In particular,the report indicated that Portugals score is decreasing for fish caught from overexploited or collapsed stocks,fish caught by trawling or dred

101、ging,and fish caught that are discarded(SDG indicator 14.4.1).While the Ocean Health Index(clean waters score,SDG indicator 14.1.1)is increasing,Portugals efforts are stagnating in protecting marine sites important to biodiversity(SDG indicators 14.2.1 and 14.5.1).The data collected by INE in 2023 (

102、INE,202313)does not include figures for indicators 14.4.1 or 14.5.1 due to data unavailability.In addition to alignment in high-level documents,policy coherence depends on a favourable institutional set-up and policy tools to translate this alignment into action(OECD,202514).Ocean priorities in the

103、European Union The European context sets many ambitious objectives and targets for EU Member States in ocean affairs and beyond(Box 1.1).Many of these top-level objectives must be incorporated into ocean strategies at national levels.Additionally,many must also be referred to in the strategies and a

104、dministrative processes of maritime administrations.Box 1.1.The EU ocean policy landscape The European Commission has introduced several ocean-related targets,incentives and obligations.In particular,the Fuel EU Maritime Initiative,part of the“Fit for 55”package,aims to reduce the greenhouse gas(GHG

105、)intensity of fuels used by the shipping sector from 2%in 2025 to 80%in 2050.It includes an incentive scheme for the uptake of renewable fuels of non-biological origin.It excludes fossil fuels from regulations certification processes and introduces the obligation to use an onshore power supply for p

106、assenger ships and containers in major EU ports by 2030.The European Union has also adopted a Strategy on Off-shore Renewable Energy,aiming for at least 60 gigawatts(GW)of off-shore wind and 1 GW of ocean energy by 2030.By the first half of 2023,EU Member States had pledged to double these targets,a

107、iming for 111 GW of installed capacity.Source:(EU Directorate General for Energy,n.d.15).The environmental agencies and maritime administrations,such as the DGRM in Portugal,are where EU policies,regulations and directives“find their legs”.Consequently,these institutions are often tasked with implem

108、enting monitoring mechanisms to track and report on progress.For instance,by March 2024,EU Member States had to submit their 2030 roadmaps detailing the national measures proposed by maritime agencies to minimise fisheries impacts on marine ecosystems under the EU Action Plan to protect and restore

109、marine ecosystems for sustainable and resilient fisheries.Another example is the EU Biodiversity Strategy to 2030,which targets safeguarding 30%of Europes terrestrial and marine environments.Environmental agencies and maritime administrations across EU Member States were mandated to submit reports b

110、y 2022 and to adopt an ecosystem-based management strategy for their marine-protected areas.In addition to influencing national targets and policies,the EU regulatory tools have influenced how Portugal has designed its spatial planning tools,particularly the Marine Strategy Framework Directive(MSFD)

111、and the Maritime Spatial Planning Directive(MSPD).According to interviews with Portuguese stakeholders in 2023 and 2024,the series of proposals introduced by the European Union provides not only an important policy and regulatory framework for Portugal and the DGRMs actions but they demonstrate cons

112、iderable diversity,which is difficult to reconcile at times.17 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 This requires policy tools at the level of operational agencies to ensure coherence among EU instruments and account for the SDGs interlinkages that the proposed policies w

113、ill impact.Portugals ocean vision and strategies to achieve a sustainable blue economy Portugal is the European Unions largest coastal state,holding jurisdiction over approximately half of the European Unions marine waters and a vast expanse of seabed and subsoil in the Northeast Atlantic.The countr

114、y plays a pivotal role in advancing ocean sustainability and governance,both within the European Union and on the global stage.Portugals main policies contributing to achieving SDG 14,as identified in the GO 2022-2026,are the NOS 2021-2030(DGRM,20217)and the Strategic Plan for Portuguese Aquaculture

115、 2021-2030(PEA)(DGRM,202116).Planning tools include the Maritime Spatial Plan(PSOEM)(Government of Portugal,201917)and the Small Fishery National Strategy 2022-2030.Moreover,one of the components(C10)of the RRP is dedicated entirely to ocean policy and governance(Ministry of Planning,20218).Other ke

116、y documents are the Portuguese National Energy and Climate Plan(PNEC)(2021-2030),revised in 2024,and the Roadmap to Carbon Neutrality 2050,which together shape the strategies for promoting decarbonisation and energy security.The PNEC was updated after the entry into force of the Portuguese Climate F

117、ramework Law.Regarding the investment in off-shore wind energy production,the Government of Portugal prepared an Off-shore Renewable Energy Allocation Plan that reserves areas along the coast of the mainland,allowing for an installed capacity of 10 GW by 2030.According to the targets of the NOS 2021

118、-2030(DGRM,20217),which provides the overarching policy framework on ocean governance in Portugal,Portugals key priorities are environmental sustainability,particularly decarbonisation,and the protection of the marine ecosystem through marine-protected areas(MPAs)and independence in the area of ener

119、gy supply.Recently,Portugal has strengthened its commitment to issues related to ocean governance,including its conservation,knowledge and advocacy.This strategic document has been developed using tools for considering and setting long-term goals,such as impact assessment,strategic foresight,Strengt

120、hs,Weaknesses,Opportunities and Threats(SWOT)analysis,etc.However,while the NOS states its alignment with the SDGs,it does not outline the extent to which its implementation will make concrete contributions to the SDG framework(i.e.the goals,targets and indicators)and whether the governing and monit

121、oring regime of the NOS overlaps with Portugals efforts in achieving the SDGs.Furthermore,the NOS,as well as sectoral strategies and plans,result from inter-ministerial co-ordination and stakeholder involvement.Yet,the link between these high-level strategies and the operational programmes,plans and

122、 administrative processes is often weak.No direct budget lines are associated with the NOSs implementation,and so far,a monitoring report has been produced on the first strategic objective of the strategy only.Consequently,there often is a lack of alignment between the ambition set in the NOS and th

123、e sectoral strategies and the operational capacities of the public institutions mandated to achieve and track results.In particular,indicators and targets to measure the different ocean policies are not aligned with the NOS.Ensuring the coherent implementation of global,European and Portuguese ocean

124、 policies Responsibilities for the ocean in Portugal are scattered across different ministries and intermediate entities.For instance,the different facets of the maritime sector are managed and regulated by various ministries and other governmental bodies(Table 1.1).18 IMPROVING POLICY COHERENCE FOR

125、 PORTUGALS OCEAN ECONOMY OECD 2025 To overcome the risk of fragmentation,the Inter-Ministerial Commission for Sea Affairs(CIAM)was created in order to oversee the implementation of the NOS 2030.It includes representatives from both line ministries and autonomous regions.It is presided over by the pr

126、ime minister and supported by a network of focal points.As a co-ordination mechanism,the CIAM has the legislative and political mandate to arbitrate for resolving policy trade-offs related to sustainability priorities in the ocean sectors.It therefore has the potential to strengthen horizontal co-or

127、dination across ministries and increase policy integration for the ocean.However,the CIAMs mandate does not cover the promotion of PCSD,and its practical involvement in ocean governance is currently limited,as it met on one occasion only under the previous government.Table 1.1.Ministry co-ordination

128、 on maritime administration Areas of regulation Ministry of Economic Affairs Ministry of Defence Ministry of Foreign Affairs Ministry of Agriculture and Food Ministry of Infrastructure and Housing Co-ordinate national participation in European and international organisations responsible for defining

129、 and monitoring maritime policies X X Define the strategic guidelines for the Mission Structure for the Extension of the Continental Shelf X X X Define the strategic guidelines for the National Maritime Authority(AMN)and co-ordinate the execution of its powers in the areas of jurisdiction and within

130、 the framework of the Maritime Authority System X X Formulate,conduct,implement and evaluate infrastructure policies,including the regulation of maritime transport and ports policies and their security X Exercise superintendence and supervision over port administrations X X Formulate,conduct,execute

131、 and evaluate policies on maritime security and port protection,as well as plan and co-ordinate the application of national and European funds intended for port protection and maritime security works,defining the respective strategy and priorities and establishing sectoral strategic guidelines relat

132、ing to fishing ports X Manage the Authority of the Mar 2020 and the Mar 2030 Operational Programme(Mar 2020 and Mar 2030)on matters related to the Integrated Maritime Policy X X Source:Decree-Law No.32/2022,approving the organisation and functioning regime of the XXIV Constitutional Government.The D

133、irectorate-General for Maritime Policy(DGPM)designs,assesses and monitors the NOS.The DGPM also serves as the technical co-ordinator,providing logistic,administrative and technical support.Moreover,it acts as the secretariat during CIAM meetings and co-ordinates the focal points network.Furthermore,

134、it ensures functional connections between public and private organisations involved in implementing,monitoring,assessing and revising the NOS Action Plan.Another inter-institutional mechanism the Consultative Committee(CC)oversees and advises the development of the PSOEM to ensure that all relevant

135、public entities interests are considered when defining sea uses and ensuring the PSOEMs compatibility with other territorial plans(e.g.Coastal Zone Management Plans).However,the interviewed stakeholders pointed out the need for further integration of planning tools.The responsibility for devising th

136、e PSOEM lies with the DGRM,a critical entity in Portugals blue economy administration(Figure 1.1).19 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Figure 1.1.Mapping of the DGRM and the blue economy administration Source:Authors elaboration.Developing a strategic framework for sus

137、tainable ocean management to 2030 In implementing its responsibilities to operationalise ocean sector strategies,the DGRM acts as a knowledge hub,supporting the creation of strategies and regulations,supporting their implementation(through planning and providing administrative services)and their ove

138、rsight(through inspections and data collection).Therefore,the DGRM is in a good position to support the orientation of policymakers in identifying,preventing and mitigating the potential adverse sustainability effects of different ocean uses.The DGRMs strategic framework for implementing ocean susta

139、inable development is currently being produced(Strategic Plan 2030).This long-term planning tool will enhance the DGRMs capacities for translating strategic ocean priorities into concrete actions and services.It will fill an important gap as an operational framework and in setting the DGRMs ambition

140、s in contributing to the SDGs by 2030,implementing the European Unions greening ambitions,and defining them through concrete targets aligned to the NOS matrix across its key mandates.Implementing Portugals long-term strategies for the ocean One of the crucial contributions of the DGRM to implementin

141、g Portugals long-term strategies for the ocean is the design and management of the Situational Plan of the PSOEM(Government of Portugal,201917)and specific Allocation Plans(POEMs).Rather than a strategic document,the PSOEM is an operational instrument and a planning framework that makes it possible

142、to co-ordinate the tools that govern maritime spatial planning.It translates the priorities and visions of the Portuguese ocean policies and the directives from the European Union and other international organisations into a plan that identifies the spatial and temporal distribution of existing and

143、potential uses and activities.It also identifies natural and cultural assets important to environmental sustainability and intergenerational solidarity.It aims to facilitate and 20 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 regulate economic activity,promoting a favourable envi

144、ronment for investment and improving social welfare.Devising the PSOEM enables the DGRM to align blue economy goals and priorities by determining which activities merit marine space reservation,ensuring they are compatible with sustainable development and marine environment conservation.The DGRM ens

145、ures transparency and legal certainty in ocean-related administrative processes by allocating marine space for various activities and protection efforts.The formulation process of the Portuguese maritime spatial planning,which involves extensive stakeholder engagement and employs integrative tools t

146、o explore synergies and trade-offs,exemplifies the potential of the DGRM to enhance maritime policy integration and render sustainability operational.In addition,the DGRM is a pivotal actor for Portugals flag state through ship inspections,data collection and supporting the creation of strategies an

147、d regulations.The DGRM already contributes to the design of Portugals vision for flag state management by approving the rules regulating the activities of entities operating in the maritime port sector.With more skilled resources,the DGRM would be in a good position to complete the links between the

148、 international conventions,which increasingly include high-level analysis of their alignment to the SDGs and the operational programmes,plans and actions with adequate references to their contributions to SDGs.Currently,there is insufficient capacity to track the results set in international strateg

149、ies,their operationalisation and with the SDGs.In the area of aquaculture,the DGRM devised the Strategic Plan for Portuguese Aquaculture 2021-2030(PEA)(DGRM,202116).In formulating its objectives,the document considers trade-offs and synergies between different economic,social and environmental prior

150、ities.Although it does not directly reference the SDGs,it enshrines the DGRMs explicit commitment to increasing food security and environmental sustainability.However,Portugals aquaculture vision could be more holistic and consequential,comparable,for instance,to Spains aquaculture policy framework(

151、SGP-MAPA,202218).Challenges in consolidating the DGRMs policy-setting and operational responsibilities The DGRM faces different challenges in playing its role in Portugals ocean economy,at a crossroads between policy-setting and operational responsibilities,acting as a focal point for a multitude of

152、 internal and external stakeholders(see Recommendation 1 in Chapter 5 in this regard).In addition to decarbonisation,digitisation and the push for ensuring sustainable practices,the DGRM and Portuguese maritime stakeholders face rapid technological advancements,evolving legislation,more stringent en

153、vironmental standards,and a constant quest for more competitive practices.This is particularly true when it comes to decarbonisation,where recent EU regulations have been incorporated into national legislation(see Table 1.2).Table 1.2.How decarbonisation interlinks with different domains Main areas

154、Analysis Understanding sector/domain dynamics Decarbonisation impacts nearly all sectors of the maritime industry,from shipping and port operations to fisheries and marine tourism.Understanding how each sector contributes to carbon emissions is crucial.For the DGRM,this means assessing the carbon fo

155、otprint of vessel operations,port activities and other maritime services to identify key areas where emissions can be reduced.Identifying shared resources and conflicts Shared resources:The marine environment is a shared resource that benefits multiple sectors,including fishing,aquaculture and touri

156、sm.Decarbonisation efforts can help preserve these resources by reducing pollution and mitigating climate change impacts on marine ecosystems.Conflicts:Efforts to decarbonise one sector may lead to conflicts with others.For instance,installing off-shore renewable energy installations conflicts with

157、traditional fishing areas or shipping lanes in Portuguese waters.The DGRM needs to manage these conflicts to ensure a balanced approach to maritime resource use.21 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Main areas Analysis Examining interdependencies and synergies Interdepe

158、ndencies:The maritime sectors are highly interdependent.For example,greener shipping practices lead for now to increased costs for transported goods,affecting the competitiveness of Portuguese exports.The DGRMs role involves facilitating dialogue and co-operation among stakeholders to ensure that de

159、carbonisation efforts are aligned across sectors,particularly as it reviews its flag state regime.Synergies:Decarbonisation can also create synergies,such as developing green ports that reduce emissions and attract environmentally conscious shipping companies,boosting the economy.The DGRM actively p

160、romotes these synergies by supporting innovations in sustainable maritime technologies and practices and facilitating simpler administrative processes,as in the case of the Janela Unica Logistica(JUL)project.Evaluating the impact of external factors External factors,like international regulations(IM

161、O 2020 sulfur cap,for instance),global market trends in shipping and advances in green technology significantly influence decarbonisation efforts.The DGRM needs to stay informed about these factors to adapt its strategies effectively and leverage opportunities for advancing decarbonisation.Policy an

162、d strategy development Policy development:Crafting policies that support decarbonisation across all sectors of the maritime economy is essential.This includes incentives for clean energy adoption,emission reduction regulations and support for research into sustainable maritime technologies.Strategy

163、development:The DGRMs strategic approach to decarbonisation should integrate all aspects of its mission,from ensuring maritime safety and promoting economic development to protecting the marine environment.This includes setting clear emissions reduction targets,developing alternative fuel infrastruc

164、ture and encouraging sustainable practices among maritime operators.Note:IMO 2020 is a global regulation issued by the International Maritime Organization.To modernise and improve the efficiency and sustainability of Portugals maritime sector,the DGRM is formulating a comprehensive Strategic Plan 20

165、30 centred on decarbonisation,digitalisation and promoting a sustainable blue economy.These priorities intersect,creating synergies such as utilising digital tools to monitor and improve marine ecosystem health,optimising energy consumption to advance decarbonisation and encouraging economic activit

166、ies that operate within ecological limits(see Table 1.3).Table 1.3.Synergies and challenges across priority areas to modernise and improve the efficiency and sustainability of Portugals maritime sector Priority areas Synergies Challenges Decarbonisation Aligns with sustainability goals;promotes clea

167、ner technologies High costs;regulatory hurdles Digitisation Enhances efficiency and sustainability;improves data management Cybersecurity risks;need for digital skills Sustainable blue economy Supports economic growth and conservation Balancing economic activities with conservation imperatives Innov

168、ation and technological advances Contributes blue innovations across other priority areas with the involvement of very different stakeholders(scientific community,academia,industry,Forum Oceano)Devoted time and resources to develop time-to-market blue solutions,some resistance in adopting new techno

169、logies for incumbents Environmental standards Driven by international,EU and national regulations,contribute to further innovation,digitisation and decarbonisation Constraints and liability risks are growing for parts of the industry;more private investments are needed for transition Workforce and t

170、raining Contribute to a diversity of attractive blue jobs,including in traditional maritime sectors Competition for talents,especially in technical domains(information and communication technology),need for outreach to advertise opportunities 22 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY

171、 OECD 2025 Applied frameworks and methodologies OECD Recommendation on Policy Coherence for Sustainable Development The analytical framework applied to assess the DGRMs current capacity(Chapter 2)to design and implement coherent policies is based on the PCSD Recommendation(OECD,201919),which is stru

172、ctured along three main pillars and eight principles(Figure 1.2).It calls for:a strategic vision for implementing the 2030 Agenda underpinned by a clear political commitment and leadership to enhance policy coherence for sustainable development effective and inclusive institutional and governance me

173、chanisms to address policy interactions across sectors and align actions between levels of government a set of responsive and adaptive tools to anticipate,assess and address domestic,transboundary and long-term impacts of policies.Figure 1.2.The OECD Recommendation on Policy Coherence for Sustainabl

174、e Development Source:OECD(201919),Recommendation of the Council on Policy Coherence for Sustainable Development,https:/legalinstruments.oecd.org/en/instruments/oecd-legal-0381.Identifying policy interlinkages across maritime sectors Underpinned by the principles enshrined in the PCSD Recommendation,

175、a complementary methodology was developed to identify maritime sectors interlinkages and dynamics,including in the context of the SDGs(Table 1.4),to identify challenges and opportunities in integrating digitalisation,decarbonisation and sustainable use of marine resources in key areas under the DGRM

176、s responsibility.23 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Table 1.4.Interactions between SDG 14,Life Below Water,and other SDGs SDG Impact of SDG 14 Impact on SDG 14 Description of linkage SDG 1 No Poverty X A healthy ocean is crucial for poverty alleviation,especially in

177、many small island developing states(SIDS)and least developed countries(LDCs)where fishery,aquaculture and tourism are key sources of livelihoods for coastal populations.SDG 2 Zero Hunger X Sustainable aquaculture and innovative solutions for mariculture can significantly help meet the increasing glo

178、bal demand for food if managed sustainably.X Reducing ocean pollution and overfishing can put an end to fish stock depletion and negative impacts on the quality of edible fish and other marine products.SDG 3 Good Health and Well-being X Addressing pollution of coastal areas and marine resources can

179、kerb its negative impacts on health and well-being.X The ocean is an important part of human well-being due to the cultural and recreational value people attach to it.Marine biodiversity provides a multitude of animals,algae and bacteria that can support the development of new medicines and vaccines

180、.SDG 4 Quality Education X Ocean literacy is key to ensuring awareness and scaling up action to protect and conserve marine ecosystems.SDG 5 Gender Equality X Sustainable development of ocean-based industries can create new economic opportunities for women.SDG 6 Clean Water and Sanitation X X Addres

181、sing wastewater(industrial and residential)and agricultural runoff reduces ocean pollution.X X Wetlands protect water quality by trapping sediments and retaining excess nutrients and other pollutants,such as heavy metals,that may otherwise end up in the sea.SDG 7 Affordable and Clean Energy X X Redu

182、cing greenhouse gas emissions can contribute to ocean health by reducing ocean warming and acidification.X Energy infrastructures in coastal and marine environments can have negative impacts on ocean health and present a threat to marine ecosystems.SDG 8 Decent Work and Economic Growth X X Expansion

183、 in traditional and emerging ocean-based economic activities can help boost employment(e.g.in offshore wind energy,marine aquaculture,fish processing and port activities).SDG 9 Industry,Innovation and Infrastructure X X Industrial byproducts and waste(e.g.heavy metals,chemicals,particulate matter)po

184、llute oceans.On the other hand,efforts to improve the quality of infrastructure and planning for industrialisation could have large positive impacts on coastal areas currently detrimentally impacted by industry.SDG 10 Reduced Inequalities X Enhancing the quality of jobs and the social sustainability

185、 of ocean-related sectors can boost socio-economic inclusion.SDG 13 Climate Action X Pollution acts with other stressors to hamper the resilience of ecosystems to climate change.X X The oceans capacity to regulate the climate can be enhanced by conserving and enhancing the oceans carbon sink.SDG 15

186、Life on Land X X Better management of terrestrial ecosystems can reduce ocean pollution.SDG 16 Peace,Justice and Strong Institutions X Conserving the oceans capacity to regulate the climate can prevent large climate migration flows.SDG 17 Partnerships X The transboundary nature of the ocean and the

187、global connectivity of marine ecosystems require the establishment of effective partnerships between different countries and actors.Note:For a detailed analysis of SDG interlinkages,see also Council on Science(201720).Source:Table revised from OECD(202021),Sustainable Ocean for All:Harnessing the Be

188、nefits of Sustainable Ocean Economies for Developing Countries,https:/doi.org/10.1787/bede6513-en.24 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 The methodology is based on a set of guiding questions developed by the OECD team around five main themes,providing tools for a diagno

189、stic of the sustainability interactions within key sectors of the DGRMs competencies,including managing potential competition in marine resource usage,as well as managing positive synergies and the policy implications of addressing these interactions:1.Understanding sector dynamics:This involves ana

190、lysing each maritime sectors core activities,stakeholders and regulatory environments.It seeks to understand how each sector operates,its goals,the challenges it faces,and its importance to the national economy and environmental sustainability.Understanding sector dynamics is crucial for identifying

191、 how different maritime activities in Portugal,such as shipping,fishing,tourism and aquaculture,impact and interact with each other and the marine environment.2.Identifying shared resources and conflicts:This theme examines the resources shared among sectors,such as waterways,and potential conflicts

192、 arising from their use.For instance,aquaculture zones may overlap with areas designated for marine conservation or offshore renewable energy,leading to conflicts that need careful management.Identifying these shared resources and conflicts is essential for developing strategies that balance the nee

193、ds and impacts of different sectors.3.Examining interdependencies and synergies:This involves looking for ways in which different maritime sectors are interconnected and can benefit from each other.For example,developing offshore renewable energy can create opportunities for local shipbuilding and m

194、aintenance services.Recognising these interdependencies and synergies can help promote co-operative strategies that enhance the overall productivity and sustainability of the maritime economy.4.Evaluating the impact of external factors:External factors,such as global economic trends,climate change a

195、nd international maritime regulations,can significantly affect maritime sectors.This category assesses how such external pressures impact sectoral dynamics,shared resources,and the potential for conflicts or synergies.Understanding these impacts is critical for adaptive management and resilience bui

196、lding within maritime sectors.5.Policy and strategy development:Based on the understanding of sector dynamics,shared resources,interdependencies and external impacts,this final step aims to contribute to creating effective policies and strategies.It involves developing initiatives that support susta

197、inable development,anticipate and address trade-offs and leverage synergies among maritime sectors.As part of this policy and strategy development,stakeholder engagement is important,ensuring that the needs and perspectives of all affected parties are incorporated.Together,these themes provide a com

198、prehensive approach to mapping the complex web of interlinkages among maritime sectors and could help guide the DGRM in its efforts to manage Portugals maritime affairs.For each theme,guiding questions are designed to uncover the complex relationships and potential areas for policy integration or co

199、nflict resolution.Table 1.5 applies the questions to the three pilot areas examined:maritime spatial planning,aquaculture,and flag state.These guiding questions can be adapted to different policy areas to reveal different interlinkages and inform policy making.Table 1.5.Guiding questions to reveal s

200、ectoral interlinkages under the DGRMs remit Theme Guiding questions Understanding sector/domain dynamics What are the primary objectives of each maritime sector and domain(e.g.marine protected areas)under the DGRMs jurisdiction,and how do they align or conflict with one another?-How do current marit

201、ime policies and regulations impact the operations and growth of each sector?Identifying shared resources and conflicts What shared resources(e.g.water space,marine biodiversity)are critical to the sustainability and productivity of the multiple sectors under the DGRMs remit?-Are there any historica

202、l or potential conflicts between sectors over the use of these shared resources?-How do environmental protection efforts intersect with the goals and activities of each sector?25 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Theme Guiding questions-In what ways do shipping,aquacul

203、ture,tourism,energy sectors and sea-cable developments,in particular,utilise shared marine spaces,and what conflicts have arisen from this shared use?Examining interdependencies and synergies Where are the opportunities for synergy between different maritime sectors,such as using marine technology t

204、o enhance energy production and environmental conservation?-How might advancements in maritime technology impact the efficiency,safety and environmental footprint of sector activities?-What role do European and international maritime regulations play in shaping the interlinkages between sectors,part

205、icularly in terms of environmental and safety standards?Evaluating the impact of external factors How do global economic trends and climate change projections influence the future sustainability and growth of these sectors?-What are the implications of international maritime disputes or geopolitical

206、 tensions on maritime sector management and strategic planning?Policy and strategy development Based on the above analysis,what strategies,initiatives or tools could be implemented to enhance collaboration between sectors and mitigate potential conflicts?-How can the DGRM leverage digital transforma

207、tion and innovation to support sustainable growth across all maritime sectors?-What are the gaps in current policy or legislation that prevent effective management of sector interlinkages,and how might these be addressed?Source:Authors elaboration.These guiding questions,visually summarised in Figur

208、e 1.3,can support the DGRM in systematically evaluating the complex web of relationships within the maritime domain.Benchmarking Portugals performance against other countries practices,as outlined in the following chapters,could further facilitate the development of integrated policies and strategie

209、s that promote sustainable growth and environmental stewardship.Figure 1.3.Visual representation of the methodology used to understand policy interlinkages Source:Authors elaboration.26 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Annex 1.A.Portugals economic and environmental pr

210、ofile This annex includes information adapted from the OECDs latest Environmental Performance Review of Portugal in 2023.It is presented for reference purposes to contextualise Portugals maritime sector within its broader economic profile.Portugal is the westernmost country of mainland Europe and in

211、cludes the Azores and Madeira archipelagos in the Atlantic Ocean.Its territory covers 92 200 km2 and includes 2 600 km of coastline.Agricultural land and forests each cover about 40%of its land area.The Portuguese economy is small and open.In 2021,gross domestic product(GDP)per capita was 25%lower t

212、han the OECD average.Economic activity grew steadily from 2013 until the coronavirus(COVID-19)pandemic.GDP rose by 4.9%in 2021,rebounding from an unprecedented slump in 2020(-8.4%).The services sector,particularly tourism,is the countrys largest employer.Population density is similar to the OECD Eur

213、opean average,but distribution across regions is uneven.Thanks to its geographical location and geophysical conditions,Portugal possesses a diverse natural heritage.The Azores and Madeira archipelagos are home to unique habitats.Portugals mineral resources include significant deposits of zinc,copper

214、,lead,tin and tungsten,as well as lithium.The country relies entirely on imports of fossil fuels.Domestic energy production comes primarily from bioenergy,wind and hydropower.In Portugal,agriculture,infrastructure development,invasive species,natural processes(such as erosion),climate change and fir

215、es exert significant pressures on biodiversity.About 30%of fish and birds and 20%of mammals and reptiles are threatened.Revenue from environmentally related taxes remains above the OECD and OECD European averages.As in many countries,most receipts come from taxes on energy products and,to a lesser e

216、xtent,motor vehicles purchase and use.Taxes on pollution and resource management,such as the tax on effluent discharges and fees for hunting and fishery licences,raise little revenue.GHG emissions declined due to reduced energy demand following the 2008 crisis and increasing renewable electricity ge

217、neration.With the economic recovery,emissions rebounded in 2014-17,particularly in the transport sector.They have since fallen,driven by a strong shift away from coal-fired power generation.In 2020,the reduction in GHG emissions can be partly attributed to lower energy consumption due to restriction

218、s during the COVID-19 pandemic.The transport sector is the largest GHG emitter,followed by energy,manufacturing,and construction industries.Over 2005-20,emissions have decreased in all sectors but agriculture.Portugals economy is less CO2 intensive than the OECD European average,reflecting a service

219、-oriented economy and a high share of renewable energy.However,emissions of methane(from agriculture and waste)and fluorinated gas(hydrofluorocarbons from refrigeration and air conditioning equipment)make its economy more GHG intensive than the OECD European average(OECD,202322;OECD,202423).27 IMPRO

220、VING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 References Council on Science(2017),SDGs Guide to Interactions,https:/council.science/wp-content/uploads/2017/05/SDGs-Guide-to-Interactions.pdf.20 DGRM(2021),National Ocean Strategy 2021-2030,https:/www.dgpm.mm.gov.pt/_files/ugd/eb00d2_b2cf

221、9034fcc84867be8d08d69435c3bc.pdf.7 DGRM(2021),Plano Estrategico para a Aquicultura Portuguesa 2021-2030,https:/www.dgrm.mm.gov.pt/documents/20143/45612/PT_PEA_2021_2030.pdf/37c9c077-f248-ff56-3de9-0ffe12c89f89.16 EU Directorate General for Energy(n.d.),Marine renewable energy,https:/oceans-and-fishe

222、ries.ec.europa.eu/ocean/blue-economy/marine-renewable-energy_en.15 Government of Portugal(2023),Lei das Grandes Opsoes para 2023-2026 Lei n.38/2023,https:/diariodarepublica.pt/dr/detalhe/lei/38-2023-216598400.10 Government of Portugal(2023),National Reform Programme.11 Government of Portugal(2021),A

223、cordo de parceria-Repblica Portuguesa(Portugal 2030),https:/portugal2030.pt/wp-content/uploads/sites/3/2022/07/sfc2021-PA-2021PT16FFPA001-2.0_vf.pdf.9 Government of Portugal(2019),Plano de Situao do Ordenamento do Espao Martimo Nacional,https:/www.psoem.pt/o-plano-de-situacao/.17 INE(2023),Objetivos

224、 de Desenvolvimento Sustentvel-Agenda 2030-Indicadores para Portugal:2015-2022,Instituto Nacional de Estatstica,Lisbon,https:/www.ine.pt/xurl/pub/611060313.13 Le Blanc,D.,C.Freire and M.Vierros(2017),“Mapping the linkages between oceans and other Sustainable Development Goals:A preliminary explorati

225、on”,Department of Economic&Social Affairs Working Papers,No.149,United Nations,https:/www.un.org/esa/desa/papers/2017/wp149_2017.pdf.6 Ministry of Planning(2021),Plano de Recuperao e Resilincia,https:/recuperarportugal.gov.pt/wp-content/uploads/2021/10/PRR.pdf.8 Ocean Panel(2020),Ocean Solutions tha

226、t Benefit People,Nature and the Economy,https:/oceanpanel.org/publication/ocean-solutions-that-benefit-people-nature-and-theeconomy/.5 OECD(2025),Portugal Scan-Institutional mechanisms for enhancing policy coherence for sustainable development,OECD Publishing,Paris,forthcoming.14 OECD(2025),The Ocea

227、n Economy to 2050,OECD Publishing,Paris,forthcoming.2 OECD(2024),“Biodiversity:Threatened species”,OECD Environment Statistics(database),https:/doi.org/10.1787/data-00605-en.23 OECD(2023),Driving Policy Coherence for Sustainable Development:Accelerating Progress on the SDGs,OECD Publishing,Paris,htt

228、ps:/doi.org/10.1787/a6cb4aa1-en.4 28 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 OECD(2023),OECD Environmental Performance Reviews:Portugal 2023,OECD Publishing,Paris,https:/doi.org/10.1787/d9783cbf-en.22 OECD(2020),Sustainable Ocean for All:Harnessing the Benefits of Sustainabl

229、e Ocean Economies for Developing Countries,OECD Publishing,Paris,https:/doi.org/10.1787/bede6513-en.21 OECD(2019),Recommendation of the Council on Policy Coherence for Sustainable Development,https:/legalinstruments.oecd.org/en/instruments/oecd-legal-0381.19 OECD(2016),The Ocean Economy in 2030,OECD

230、 Publishing,Paris.,https:/doi.org/10.1787/9789264251724-en.3 Sachs et al.(2024),Sustainable Development Report 2024,https:/ SGP-MAPA(2022),Spains Contribution to the Strategic Guidelines for a More Sustainable and Competitive EU Aquaculture 2021-2030,https:/www.mapa.gob.es/es/pesca/temas/acuicultura

231、/esacui_2021_2030_tcm30-636188.pdf.18 United Nations(2015),Sustainable Development Goals(SDGs),https:/sdgs.un.org/goals.1 Note 1.The ocean economy is defined by the OECD as the sum of the economic activities of ocean-based industries,together with the assets,goods and services provided by marine eco

232、systems(OECD,20163).29 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 This chapter describes Portugals Directorate-General for Natural Resources,Safety and Maritime Services multifaceted mandate,its status and organisational set-up,and human and financial resources.It identifies ke

233、y challenges and opportunities to strengthen co-ordination with other entities and digitalisation processes,with a view to more effectively addressing ocean interlinkages and contributing to a sustainable ocean economy in Portugal and beyond.2 Institutional opportunities for strengthening policy coh

234、erence in Portugals blue economy 30 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 The Directorate-General for Natural Resources,Safety and Maritime Services unique role as a maritime administration with many mandates Portugals Directorate-General for Natural Resources,Safety and M

235、aritime Services(Direo-Geral de Recursos Naturais,Segurana e Servios Martimos,DGRM)is a central service of the direct administration of the State,endowed with administrative autonomy.In May 2022,the DGRM was placed under the remit of three ministries:the Ministry of Economy,the Ministry of Infrastru

236、cture and Housing,and the Ministry of Agriculture and Food(Figure 2.1.).This decision was maintained when the new government was appointed in May 2024(Ley Organica do Governo-XXIV Governo Constitucional).As it is an independent organ,elections do not impact the DGRMs mandate but can influence report

237、ing lines.Figure 2.1.Ministries responsible for overseeing the DGRM Notes:Marine Spatial Planning(MSP).Source:Authors elaboration.The DGRM plays a crucial role as an operational interlocutor in shaping and implementing Portugals ocean priorities.The tripartite managerial structure is the result of a

238、 merger of the Port and Maritime Transports Institute and the Directorate-General for Fisheries and Aquaculture.The DGRM now assumes the responsibilities of both entities and has added environmental and sustainability responsibilities.Compared to other maritime administrations in European countries,

239、the DGRM has both the advantage and challenges of covering many sectors and domains of the ocean economy under one roof.This diversity of missions offers the DGRM unique perspectives and impetus to align stakeholders around sustainability priorities,such as maritime spatial planning,aquaculture,and

240、flag state,and to strengthen synergies(see Table 2.1).31 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Table 2.1.The DGRMs mandates in maritime spatial planning,aquaculture,and flag state Pilot area DGRM mandate Maritime spatial planning Translating Portugals overarching vision an

241、d policy priorities into tangible uses or non-uses of the sea through the development of the Situational Plan of the Maritime Spatial Plan(PSOEM)(Government of Portugal,20191)and specific Allocation Plans(POEMs),which,once approved,are integrated into the PSOEM.Aquaculture Devising the Strategic Pla

242、n for Portuguese Aquaculture 2021-2030(PEA).Responsible entity for zoning aquaculture production areas(APAs)in marine and transitional waters,while the Institute for the Conservation of Nature and Forest(ICNF)is responsible for licensing in freshwater.The DGRM designates these areas in the PSOEM.Iss

243、uing licences and permits for aquaculture production,known as Aquaculture Activity Titles(TAA),for marine and transitional waters.Flag state The DGRM is the key public institution mandated to operationalise,implement and monitor the regulations included in applicable international conventions on shi

244、ps,primarily the International Convention for the Safety of Life at Sea 1974(SOLAS 74),the International Convention for the Prevention of Pollution from Ships 1973(MARPOL),and the International Convention on Load Lines 1966(LL).Approving administrative rules regulating the activity of entities opera

245、ting in the maritime port sector.Ensuring the representation of Portugal in international organisations in the maritime port sector,such as the Technical Commission of MAR(CT-MAR).Issuing international maritime safety and pollution prevention certificates provided for by Directive 2009/15/EC.Source:

246、Authors elaboration.The DGRMs governmental status and organisational set-up As an intermediate body of the public administration,in accordance with its attributions and competencies,the DGRM develops its activities in three main areas:maritime administration fisheries and aquaculture planning and su

247、stainability.The organic structure of the DGRM is subordinated to the members of the Senior Management(Director-General and Deputy Directors),and its internal organisation follows the model of hierarchical structure in specialised directorates and divisions.It is made up of seven departments,as illu

248、strated in Figure 2.2.32 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Figure 2.2.Organigramme of the DGRM Source:Directorate-General for Natural Resources,Safety and Maritime Services.The DGRMs human and financial resources Human resources and capacity needs Table 2.2 shows the c

249、urrent distribution of human resources within the DGRM.According to the DGRMs documents,personnel shortages are a cross-cutting issue across all DGRM directorates and divisions,and approximately 90 new hires will be required by 2030(DGRM,20232).Table 2.2.The DGRMs human resources Directorate of Mari

250、time Administration Services(DSAM)41 Sea Personnel and Recreational Navigators Division(DPMNR)13 Ships in Service and Protection Division(DNSP)9 New Construction Division(DNC)5 Directorate for Natural Resources(DSRN)24 Aquaculture Division(DA)9 Human Resources Division(DRE)8 Internal Resources Divis

251、ion(DRI)7 Directorate of Planning,Information and Infrastructure(DSPIE)21 Fleet Division(DF)14 Industry and Markets Division(DIM)7 Directorate of Maritime Activities Inspection,Monitoring and Control Services(DSMC)56 Maritime Activities Control Division(DCAM)16 33 IMPROVING POLICY COHERENCE FOR PORT

252、UGALS OCEAN ECONOMY OECD 2025 Maritime Activities Inspection Division(DIAM)27 Maritime Traffic and Control Systems Division(DOCTM)13 Directorate for Planning and Sustainability(DSAS)21 Infrastructure Division(DIE)11 Environmental Monitoring Division(DMA)10 Total number of employees 242 Note:The gran

253、d total indicates all DGRM employees,not only expert staff in the listed Directorates.Source:Internal documents provided by the Directorate-General for Natural Resources,Safety and Maritime Services(DGRM,20232).A reinforcement of teams was projected for 2022 to reduce the existing gap in human resou

254、rces,but in fact,there was a 2%decrease in the number of professionals between 2021 and 2022(DGRM,20232).This is due to the limited capacity of the DGRM to attract talent,given low entry-level salaries and a small pool of workers with the appropriate profile in public administration.The DGRMs recrui

255、ting difficulties compound its workforces ageing.By 2030,it is estimated that around 30%of its current professionals will retire,risking the retention and transfer of technical knowledge and the organisations overall sustainability.Human-related challenges emerged during the stakeholder interviews i

256、n the different areas.For example:In the pilot area of maritime spatial planning,given the changing nature of emerging and mature sea activities and the trade-offs and conflicts of interest that arise,hiring capable human resources and upskilling the DGRMs analysts are needed to reinforce the PSOEM

257、process and the POEMs.Updated knowledge and capacities to use new analytical models and big data are crucial to ensure sustainable use of the sea.Such updated knowledge and capacities could also reduce delays in issuing titles for the private use of maritime space(TUPEMs).In the pilot area of flag s

258、tate services,ship inspectors are urgently needed to fulfil fleet-monitoring obligations to avoid non-compliance with the required quota regarding fleet-monitoring obligations.The availability of existing flag state inspectors to train the next generation is also a key issue.In addition,the DGRM lac

259、ks representatives in international fora and personnel who can update national shipping legislation in a timely manner to align with EU and international frameworks.Furthermore,cross-cutting skills are lacking,such as skills to fully contribute to defining and re-evaluating strategies,managing funds

260、,etc.Aquaculture licensing and monitoring processes are slower due to a lack of agents with adequate skills to carry out these tasks.Financial resources Having the right set of financial resources is a significant factor in meeting the DGRMs obligations.Table 2.3 and Table 2.4 describe the DGRMs fin

261、ancial set-up,showing the allocation of funds across its various mandated areas.34 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Table 2.3.The DGRMs budget,2021-23 In EUR millions 2021 2022 2023 Operation 16 17 17 Investment 17 15 13 Total 33 32 30 Source:Internal documents provid

262、ed by the Directorate-General for Natural Resources,Safety and Maritime Services(DGRM,20232).Table 2.4.Personnel and general expenses of the DGRM and its organic units,2023 In EUR millions Budget 2023 Total People General expenses Maritime administration 5.1 42%58%Planning and sustainability 2.6 42%

263、58%Fisheries and aquaculture 11.3 39%61%Total for the three blue economy pilots 19(65.5%)40.2%59.8%Total DGRM 29 42%58%Source:Internal documents provided by the Directorate-General for Natural Resources,Safety and Maritime Services(DGRM,20232).Table 2.4 shows that,on average,40%of the expenses are o

264、n personnel across all areas,suggesting that unless the overall budget increases,new hiring will reduce the general expenditure below the current level of 60%.Table 2.5 demonstrates that just over half of the DGRMs revenue stems from its own services,suggesting that its business model seems sustaina

265、ble,and the DGRM could claim further independence in managerial decisions.Table 2.5.The DGRMs revenue sources,2023 In EUR millions Revenue sources 2023 From the Government of Portugal 11 From EU funds 7 From DGRM services 11 Total DGRM 29 Source:Internal documents provided by the Directorate-General

266、 for Natural Resources,Safety and Maritime Services(DGRM,20232).35 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Key challenges Internal challenges as a maritime administration with many missions Human resources and budget allocations have not been adequately scaled to match the e

267、xpanding responsibilities and environmental and sustainability functions of the DGRM following the merger of the Port and Maritime Transport Institute and the Directorate-General for Fisheries and Aquaculture.The resulting disproportionate workload arises from both structural and contingent factors.

268、These include:Structural factors:Resource mismatch:A disconnect exists between the DGRMs diverse competencies and the human resources available to meet them.Co-ordination gaps:Inefficiencies persist both within the DGRMs internal structure and across other public entities involved in the ocean econo

269、my.As the DGRM serves as a central hub for maritime administrative processes,these gaps place additional strain on its personnel,who must consolidate fragmented information.Decision-making delays:Prolonged delays in managerial and administrative decisions across the three ministries overseeing the D

270、GRM further exacerbate the burden.Contingent factors:Excessive non-recurrent requests:The DGRM faces a significant volume of one-off tasks,such as managing funds,developing strategies and implementing EU mechanisms(e.g.its Recovery and Resilience Plan,“Fit for 55”funds).These demands compete with th

271、e skills and capacity required to address routine responsibilities.These combined challenges lead to operational inefficiencies,including:low execution rates for critical operating expenses delays in awarding and executing investment projects limited national and international institutional represen

272、tation.Moreover,these issues have eroded stakeholder satisfaction,as evidenced by stakeholder interviews indicating a progressive decline in confidence.Table 2.6 highlights the division of maritime tasks across OECD countries,showing that Portugal and France operate the most centralised maritime adm

273、inistration models.Table 2.6.OECD country approaches to managing their maritime administrations Portugal Denmark Spain France Ireland Norway Is there a national commitment to improve ocean policy coherence(e.g.national ocean strategy)?Yes Yes Yes Yes Yes Yes Is inter-ministerial collaboration facili

274、tated(inter-ministerial committee)?Yes No No Yes Yes Yes Is one central maritime administration or several dealing with different priority areas(fisheries,shipping)?Central DGRM+a few separate Several Several(autonomous regions)Central DGAMPA(regions+overseas territories)Several Several 36 IMPROVING

275、 POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Portugal Denmark Spain France Ireland Norway Is there a one-stop administration for maritime spatial planning?Yes Yes Yes Yes Yes Yes Are implementation responsibilities clearly divided among different administrations,considering the distinct c

276、omparative advantage of each level(e.g.national policy setting vs instrumental implementing structure)?Partly-Unclear division Yes Not always(competition across regions)Overall Yes Yes Yes Are there effective co-ordination mechanisms that harmonise efforts across administrations?Ongoing Yes Ongoing

277、Ongoing Yes Yes Source:Authors elaboration based on comparative desk research.Challenges in co-ordinating with other entities The DGRM aims to act as a one-stop-shop for the ocean,centralising requests by stakeholders representing different areas of Portugals blue economy to the public administratio

278、n.While stakeholders recognise the DGRMs crucial role as co-ordinator,they express concern about the accessibility to its administrative services,worrying that this leads to investors abandoning the projects in favour of other destinations with more streamlined bureaucratic processes.The main constr

279、aints the DGRM and interviewed stakeholders mentioned were the large number of entities involved,insufficient communication and articulation,and lack of predictability,resulting in a lengthy licensing process.Specific processes in relation to the three pilots that would benefit from increased co-ord

280、ination include:Maritime spatial planning:Simplifying the process to obtain the titles for the private use of maritime space(TUPEM),with the exception of research and development(R&D)activities at sea.Flag state:Mainstreaming processes for ship inspection operations and training of seafarers and tec

281、hnical experts.Aquaculture:The administrative processes for establishing APAs1 and issuing TAAs.2 Challenges related to digitalisation Digitalisation is the cornerstone of the centralised administrative services that the DGRM offers.Recent digitalisation improvements,e.g.the establishment of the Sea

282、 Electronic Counter(Balco Eletrnico do Mar,BMar)platform in 2017 for licensing private uses of the marine space(BMar,n.d.3),can strengthen synergies across administrative procedures and data analysis,as seen across all three pilot areas.In particular,the management of flag state was digitalised with

283、 the introduction of new measures with Decree-Law No.92/2018.In addition,the online platform BMar successfully contributed to streamlining and simplifying the process related to aquaculture activities.A more comprehensive digitalisation process could significantly alleviate the administrative burden

284、 faced by the DGRM and other entities,freeing up capacities to further integrate sustainability and policy coherence objectives in their day-to-day work.Gaps that could be addressed through a more comprehensive approach to digitalisation include:Inadequate technological infrastructure:There is limit

285、ed internal technological infrastructure for desk work and information management.37 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Incomplete digitalisation of documents:This causes delays and inefficiencies in services.Some processes have not yet been fully digitalised;for instan

286、ce,electronic records of ship mortgages have not yet been introduced.This could improve how maritime assets are financed,traded and managed.Weak electronic data compilation and management.Weak interoperability between different information technology(IT)systems:Currently,the BMar does not function a

287、s a true one-stop-shop,partly due to weak interoperability between databases used internally by the DGRMs different departments as well as in co-ordination with other entities(e.g.BMar;Sistema Nacional de Embarcaes e Martimos/National Ship and Seafarer System,SNEM;Sistema Integrado de Licenciamento

288、do ambiente/Integrated Environmental Licensing System,SILiAmb);and Capitania online).Challenges in assessing policy and financing impacts and monitoring,reporting and evaluation The DGRM also faces several challenges related to its monitoring and analytical capacities:Weak indicators to monitor the

289、sustainability of aquaculture establishments,in particular regarding their impact on marine biodiversity.A wealth of data is collected through BMar.Yet,this information is not stored electronically by the DGRM,which causes bottlenecks in the measurement and monitoring of activities carried out via B

290、Mar.This wealth of data could strengthen interactions with other entities and contribute to monitoring the National Ocean Strategy(NOS).Limited interaction with the scientific community hinders the development of adequate monitoring systems and indicators.To counteract these challenges,the creation

291、of a collaborative network,SEAMind,is promising.SEAMind identifies economic,social and environmental indicators to measure the results of ocean-related policies(DGPM,20194).These indicators are based on data collected through various strategic frameworks,such as the NOS,the PSOEM,the Ocean Satellite

292、 Account(OSA),and the EU Marine Strategy Framework Directive(MSFD).References BMar(n.d.),Balco Eletrnico do Mar,https:/www.bmar.pt/BMAR_Geral/faces/userauth/LoginX.xhtml?ssoOrigApp=BMAR_Pedido.3 DGPM(2019),SEAMInd Monitoring and Indicators,https:/www.dgpm.mm.gov.pt/_files/ugd/eb00d2_c62a855fc27649be

293、87004ced5ecd4242.pdf.4 DGRM(2023),Institutional and Stakeholder Mapping.2 Government of Portugal(2019),Plano de Situao do Ordenamento do Espao Martimo Nacional,https:/www.psoem.pt/o-plano-de-situacao/.1 Government of Portugal(2008),Regulatory Decree Aquaculture Production Offshore,https:/www.dgrm.mm

294、.gov.pt/documents/20143/0/DECR_9_2008.pdf/3d94abaf-ba46-6463-2198-0395ed3ad524.5 38 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Notes 1.The Regulatory Decree 9/2008(Government of Portugal,20085)defines the fundamental rules for the establishment of APAs in the open sea(offshore)

295、.2.In order to obtain a TAA,applicants have to provide the necessary documents through the BMar portal.When there are multiple activity requests for the same area(APA),a jury evaluates the application and grants the TAA to the best applicants.39 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY

296、 OECD 2025 This chapter applies a policy coherence lens to three blue priority areas in Portugal:maritime spatial planning,aquaculture,and flag state.For each area,the analysis highlights sustainability interlinkages,synergies and trade-offs and presents practical considerations for enhancing policy

297、 coherence for sustainable development.The chapter also highlights good practices and lessons learned from other countries,with a view to inform co-ordinated and sustainable ocean management in Portugal across its many uses and functions.3 Applying a policy coherence lens to aquaculture,maritime spa

298、tial planning,and flag state in Portugal 40 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Introducing the three pilot areas Early project discussions with the Directorate-General for Natural Resources,Safety and Maritime Services(Direo-Geral de Recursos Naturais,Segurana e Servios

299、 Martimos,DGRM)and other stakeholders selected three pilot areas under DGRMs remit for more in-depth analysis:Pilot area 1 Maritime spatial planning:To strengthen the DGRMs capacities and stakeholder engagement on spatial and marine protection planning processes to increase public trust around innov

300、ative and sustainable ways of using marine resources.Pilot area 2 Aquaculture:To address administrative bottlenecks in the licensing process and strengthen evidence on the interlinkages between aquaculture and ecosystems/food security/decarbonisation that can ease the licensing process.Pilot area 3

301、Flag state:To explore improved administrative mechanisms(issuing flag permits,inspections,etc.)to control the ships under Portugals State Flag in view of ensuring that flag activities are balanced in their contributions to the Sustainable Development Goals(SDGs).This chapter reviews practical experi

302、ences and lessons learned in these three areas with a view to drawing some useful conclusions to feed into a broader set of recommendations(see Chapter 5).Maritime spatial planning Sustainability interlinkages in maritime spatial planning Maritime spatial planning(MSP)is an instrument of critical im

303、portance that has the potential to promote the growth of Portugals blue economy,making new areas available for different emerging traditional activities while ensuring the Good Environmental Status(GES)of the ocean.In this context,it is crucial to understand potential conflicting uses of marine area

304、s for example,between offshore wind energy and fisheries and to assess how new uses could provide opportunities for upskilling workers from traditional sectors.Table 3.1 applies the methodology introduced in Chapter 2 to map policy interlinkages that can be minimised or promoted through strategic sp

305、atial allocations and regulatory measures.Table 3.1.Interlinkages for DGRM to consider in managing maritime spatial planning Main areas Analysis Understanding sector/domain dynamics Sectoral demands:The Portuguese maritime space caters to diverse activities,including shipping,fishing,renewable energ

306、y,tourism,seabed cables,minerals/sand extraction and conservation.Each sector has unique spatial and environmental requirements.For example,renewable energy projects like offshore wind farms require areas with specific wind conditions,which overlap with shipping routes or fishing grounds.Environment

307、al conservation:The need to protect marine biodiversity and ecosystems adds another layer of complexity.Marine-protected areas(MPAs)is integrated into the spatial planning to ensure biodiversity conservation while accommodating economic activities.Identifying shared resources and conflicts The marin

308、e environment is a collective resource that provides economic,social and ecological benefits,as various marine resources support multiple sectors and activities.These shared resources not only underline the interconnectedness of Portuguese marine sectors but also highlight the necessity for careful

309、management to ensure their sustainability and equitable access.These include:Fish stocks:Central to both commercial and artisanal fisheries in Portugal,healthy fish stocks are also vital for the marine food web,affecting species diversity and ecosystem health.Sustainable management of fish stocks su

310、pports the fishing industry and recreational fishing and indirectly benefits marine tourism by preserving the natural attractiveness of marine areas.Marine biodiversity:The diversity of marine life forms the basis of the marine ecosystems resilience and productivity.Biodiversity is a shared resource

311、 among sectors like biotechnology,which is still developing in Portugal.It relies on genetic material from marine organisms for new medicines or materials;ecotourism,which attracts visitors to pristine marine environments;and fisheries,which 41 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY

312、OECD 2025 Main areas Analysis depend on a balanced ecosystem for sustainable fish populations.Coastal zones:They represent spatial resources that are in high demand by different Portuguese economic activities.These areas are crucial for fisheries,tourism,recreation and aquaculture in transitional wa

313、ters.Coastal zones also provide ecosystem services such as storm protection and carbon sequestration.Activities leading to pollution,such as industrial discharges or agricultural runoff,negatively impact these sectors,demonstrating the need for integrated water quality management for coastal zones,e

314、specially concerning the Tejo estuary.Sustainable development and protection in some coastal zones are thus essential to maintain the livelihoods and economies that depend on these areas.Wind and current patterns:These natural resources are essential for navigation,renewable energy generation(partic

315、ularly wind and tidal energy),and even increasingly influence fishing practices.Understanding and managing the use of space for activities like shipping and offshore renewable energy installations require considering these patterns to optimise routes and energy production while minimising environmen

316、tal impacts.Seabed and geological features:The seabed provides resources like minerals and provides habitats for marine life,which are important for conservation,scientific research and sectors like sand mining on the Portuguese continental shelf.Geological features are already tourist attractions(e

317、.g.underwater canyons or volcanic vents)and are vital for biodiversity,serving as habitats for unique species.Conflicts:The many overlapping interests of different sectors,of course,lead to conflicts.For example,areas designated for conservation might limit possibilities for tourism development or a

318、quaculture.A significant challenge for the DGRM is to mediate these conflicts,ensuring that the spatial plan balances conservation with economic development.Examining interdependencies and synergies Interdependencies:It needs to be made clearer to stakeholders that the success of one sector often de

319、pends on the health and regulation of others.For instance,sustainable fisheries in given areas(better regulated and monitored thanks to the DGRMs more advanced traffic control centre)support the tourism industry by maintaining biodiversity and attractive marine landscapes.Synergies:Identifying syner

320、gies between sectors is crucial.For example,artificial reefs can enhance marine biodiversity,benefiting both conservation goals and recreational diving tourism.The DGRM can promote such synergies through strategic spatial allocations and regulatory measures.Evaluating the impact of external factors

321、Global environmental changes:Climate change increasingly threatens ecosystems and biodiversity(IPCC,20231).Sea-level rise and ocean acidification directly impact marine ecosystems and sectoral activities.These changes can alter species distributions,affecting fisheries,and require adjustments in spa

322、tial planning to accommodate shifting marine habitats.International maritime policies:International agreements and policies,such as those governing shipping lanes and marine pollution,influence national maritime spatial planning.The DGRM must align the Maritime Spatial Plan(PSOEM)with these external

323、 mandates while advocating for Portugals interests.Source:Authors elaboration.Key trade-offs to be addressed across Portuguese sectors within maritime spatial planning Marine spatial resources are in high demand by different Portuguese economic activities.The spatial planning exercise integrates com

324、plementary information,such as data on MPAs,to ensure biodiversity conservation while accommodating economic activities.Challenges might arise in terms of the following:Renewable energy projects,like offshore wind farms,require areas with specific wind conditions,which overlap with shipping routes o

325、r fishing grounds.Deprioritising fishing in certain marine areas made available for renewable energy(SDG 7.1)might impact jobs linked to these traditional activities.The trade-offs associated with phasing out this activity must be examined,including in terms of the workforce that needs to be realloc

326、ated or reskilled.Potential trade-offs could emerge between making marine areas available for cables for communication,power transmission and data logistics and damaging sensitive marine habitats.Where the transatlantic cables might land,a detailed seabed mapping is required to minimise ecological d

327、isruption(i.e.vulnerable ecosystems,fishing grounds,etc.)and consider potential rerouting.42 IMPROVING POLICY COHERENCE FOR PORTUGALS OCEAN ECONOMY OECD 2025 Making new areas available for renewable energy activities(SDG 7.1)can negatively impact the management and protection of maritime and coastal

328、 ecosystems(SDG 14.2),creating trade-offs with the National Ocean Strategy(NOS)objective“to classify 30%of the national maritime area as protected by 2030,approving the respective management and conservation plans,and ensuring that one-third is strictly protected.”Coastal areas are crucial for touri

329、sm,recreation and aquaculture in transitional waters.Coastal zones also provide ecosystem services like storm protection and carbon sequestration.Activities leading to pollution,such as industrial discharges or agricultural runoff,negatively impact these sectors,demonstrating the need for integrated

330、 water quality management for coastal zones,particularly concerning the Tejo estuary.Key synergies to be fostered across Portuguese sectors within maritime spatial planning Exploring synergies within maritime spatial planning is important for maximising the benefits of shared marine resources and mi

331、nimising conflicts between different uses.Synergies involve situations where the combined effects of different activities or policies are greater than the sum of their individual effects.The following examples illustrate synergies in the context of maritime spatial planning,especially relevant to se

332、ctors under the DGRMs remit:Aquaculture and renewable energy:Combining offshore renewable energy installations,such as wind or wave energy,with aquaculture operations could lead to synergistic benefits.For example,the infrastructure for wind turbines can provide sheltered areas that reduce wave acti

333、on,creating more favourable conditions for aquaculture.These combined zones can also reduce spatial competition between energy and food production sectors.Several demonstration projects involve Portuguese stakeholders,such as the EU-funded AquaWind project,an innovative multi-use prototype combining offshore renewable energy and aquaculture in the Atlantic Basin,which should share results by mid-2