- 2021Approved/Agreed
- 2022Implementation
- 2023Implementation
- 2024Implementation
Background
The National anti-poverty strategy (Estratégia Nacional de Combate à Pobreza, ENCP) is framed against a broad context of government action, the Portugal 2030 and the Recovery and resilience plan, contributing to the coherence and effectiveness of the investments included in these two programmes.
The Social Summit held in Oporto in May 2021 approved the Action plan for the European pillar of social rights, committing the European Union to reducing the number of people at risk of poverty or social exclusion by 15 million by 2030, including 5 million children.
Objectives
The goal for Portugal is the release of around 360 000 people from the risk of poverty or social exclusion, including 120 000 children.
Description
The approach underlying the National anti-poverty strategy goes far beyond the definition of poverty as the deprivation of monetary resources, avoiding approaches focused solely on the analysis from a monetary point of view and seeking to make poverty reduction dependent only on economic growth. It is based on a broader vision of poverty, assuming poverty as a complex and multidimensional phenomenon, which constitutes a violation of human and citizen rights and requires integrated action from the different sectoral areas in public intervention. A range of ministries and bodies at regional and local level were involved in the initiative.
The strategy has six priorities, of which two have objectives related to education and training:
- Promoting the full integration of young adults in society and the systemic reduction of their risk of poverty by:
- prioritising youth empowerment, through access to education and vocational training, promoting educational/training success and fighting early leaving;
- promoting school and professional information and guidance, strengthening the Psychology and Guidance Services and the Qualifica centres;
- reinforcing the instruments for attracting and training young people and young adults who have not completed upper secondary education and have incomplete paths, in particular those not in employment, education or training (NEETs), under the Qualifica programme.
- Boosting employment and...
The approach underlying the National anti-poverty strategy goes far beyond the definition of poverty as the deprivation of monetary resources, avoiding approaches focused solely on the analysis from a monetary point of view and seeking to make poverty reduction dependent only on economic growth. It is based on a broader vision of poverty, assuming poverty as a complex and multidimensional phenomenon, which constitutes a violation of human and citizen rights and requires integrated action from the different sectoral areas in public intervention. A range of ministries and bodies at regional and local level were involved in the initiative.
The strategy has six priorities, of which two have objectives related to education and training:
- Promoting the full integration of young adults in society and the systemic reduction of their risk of poverty by:
- prioritising youth empowerment, through access to education and vocational training, promoting educational/training success and fighting early leaving;
- promoting school and professional information and guidance, strengthening the Psychology and Guidance Services and the Qualifica centres;
- reinforcing the instruments for attracting and training young people and young adults who have not completed upper secondary education and have incomplete paths, in particular those not in employment, education or training (NEETs), under the Qualifica programme.
- Boosting employment and qualifications as factors in the elimination of poverty by:
- raising the qualifications base and adapting training to the dynamics of the labour market, in line with the actions recommended in the Qualifica programme;
- strengthening the Qualifica programme;
- developing qualification strategies for very low-skilled citizens, including literacy dimensions, basic skills and certifiable transversal skills under the Qualifica programme;
- offering training programmes that favour upskilling and reskilling.
The Government approved the legislation.
In 2022, the strategic coordination board was created to play a key role in ensuring the definition and implementation of action plans, the articulation between the different entities involved and the definition of indicators and targets to be achieved by 2030.
In 2023, a Living lab was set up to reflect on the fundamental stages and conditions of a participatory monitoring and evaluation process, to be later trialled within the framework of the monitoring of the National anti-poverty strategy (ENCP). This initiative seeks to fundamentally enhance the democratic governance of public policies in Portugal, promoting transparency, effectiveness, and responsiveness to the needs of the population.
In 2024, the 'Roadmap for monitoring and participatory evaluation of public policies - The case of the National anti-poverty strategy', under the responsibility of Planning, Policy and Foresight Competence Centre for Public Administration Centre (PlanAPP- Centro de Competências de Planeamento, de Políticas e de Prospetiva da Administração Pública) was launched. This document presents the results of the work carried out in 2023 in the scope of the Living lab; it is organised in a series of steps that serve as a roadmap to guide the involvement of the population in the monitoring and evaluation of planning instruments in general, using the ENCP as a case study.
Bodies responsible
- Presidency of the Council of Ministers [Presidência do Conselho de Ministros]
- Ministry of Labour, Solidarity and Social Security (MTSSS)
- Ministry of Education (Until April 2024)
- Ministry of Infrastructures and Housing (MIH) (until 2023)
- Ministry of Health (MS)
- Local Authorities
- Ministry of Housing (MH)
- Ministry of Education, Science and Innovation (MECI)
Target groups
Learners
- Young people not in employment, education or training (NEETs)
- Learners with migrant background, including refugees
- Low-skilled/qualified persons
- Learners from other groups at risk of exclusion (minorities, people with fewer opportunities due to geographical location or social-economic disadvantaged position)
Thematic categories
Governance of VET and lifelong learning
This thematic category looks at existing legal frameworks providing for strategic, operational – including quality assurance – and financing arrangements for VET and lifelong learning (LLL). It examines how VET and LLL-related policies are placed in broad national socioeconomic contexts and coordinate with other strategies and policies, such as economic, social and employment, growth and innovation, recovery and resilience.
This thematic category covers partnerships and collaboration networks of VET stakeholders – especially the social partners – to shape and implement VET in a country, including looking at how their roles and responsibilities for VET at national, regional and local levels are shared and distributed, ensuring an appropriate degree of autonomy for VET providers to adapt their offer.
The thematic category also includes efforts to create national, regional and sectoral skills intelligence systems (skills anticipation and graduate tracking) and using skills intelligence for making decisions about VET and LLL on quality, inclusiveness and flexibility.
This thematic sub-category refers to the integration of VET into economic, industrial, innovation, social and employment strategies, including those linked to recovery, green and digital transitions, and where VET is seen as a driver for innovation and growth. It includes national, regional, sectoral strategic documents or initiatives that make VET an integral part of broader policies, or applying a mix of policies to address an issue VET is part of, e.g. in addressing youth unemployment measures through VET, social and active labour market policies that are implemented in combination. National skill strategies aiming at quality and inclusive lifelong learning also fall into this sub-category.
Modernising VET offer and delivery
This thematic category looks at what and how individuals learn, how learning content and learning outcomes in initial and continuing VET are defined, adapted and updated. First and foremost, it examines how VET standards, curricula, programmes and training courses are updated and modernised or new ones created. Updated and renewed VET content ensures that learners acquire a balanced mix of competences that address modern demands, and are more closely aligned with the realities of the labour market, including key competences, digital competences and skills for green transition and sustainability, both sector-specific and across sectors. Using learning outcomes as a basis is important to facilitate this modernisation, including modularisation of VET programmes. Updating and developing teaching and learning materials to support the above is also part of the category.
The thematic category continues to focus on strengthening high-quality and inclusive apprenticeships and work-based learning in real-life work environments and in line with the European framework for quality and effective apprenticeships. It looks at expanding apprenticeship to continuing vocational training and at developing VET programmes at EQF levels 5-8 for better permeability and lifelong learning and to support the need for higher vocational skills.
This thematic category also focuses on VET delivery through a mix of open, digital and participative learning environments, including workplaces conducive to learning, which are flexible, more adaptable to the ways individuals learn, and provide more access and outreach to various groups of learners, diversifying modes of learning and exploiting the potential of digital learning solutions and blended learning to complement face-to-face learning.
Centres of vocational excellence that connect VET to innovation and skill ecosystems and facilitate stronger cooperation with business and research also fall into this category.
This thematic sub-category refers to acquisition of key competences and basic skills for all, from an early age and throughout their life, including those acquired as part of qualifications and curricula. Key competences include knowledge, skills and attitudes needed by all for personal fulfilment and development, employability and lifelong learning, social inclusion, active citizenship and sustainable awareness. Key competences include literacy; multilingual; science, technology, engineering and mathematical (STEM); digital; personal, social and learning to learn; active citizenship, entrepreneurship, cultural awareness and expression (Council of the European Union, 2018).
Supporting lifelong learning culture and increasing participation
Lifelong learning refers to all learning (formal, non-formal or informal) taking place at all stages in life and resulting in an improvement or update in knowledge, skills, competences and attitudes or in participation in society from a personal, civic, cultural, social or employment-related perspective (Erasmus+, Glossary of terms, https://erasmus-plus.ec.europa.eu/programme-guide/part-d/glossary-common-terms). A systemic approach to CVET is crucial to ensure adaptability to evolving demands.
This broad thematic category looks at ways of creating opportunities and ensuring access to re-skilling and upskilling pathways, allowing individuals to progress smoothly in their learning throughout their lives with better permeability between general and vocational education and training, and better integration and compatibility between initial and continuing VET and with higher education. Individuals should be supported in acquiring and updating their skills and competences and navigating easily through education and training systems. Strategies and campaigns that promote VET and LLL as an attractive and high-quality pathway, providing quality lifelong guidance and tailored support to design learning and career paths, and various incentives (financial and non-financial) to attract and support participation in VET and LLL fall into this thematic category as well.
This thematic category also includes many initiatives on making VET inclusive and ensuring equal education and training opportunities for various groups of learners, regardless of their personal and economic background and place of residence – especially those at risk of disadvantage or exclusion, such as persons with disabilities, the low-skilled and low-qualified, minorities, migrants, refugees and others.
This thematic sub-category refers to making VET pathways and programmes inclusive and accessible for all. It concerns measures and targeted actions to increase access and participation in VET and lifelong learning for learners from all vulnerable groups, and to support their school/training-to-work transitions. It includes measures to prevent early leaving from education and training. The thematic sub-category covers measures promoting gender balance in traditionally ‘male’ and ‘female’ professions and addressing gender-related and other stereotypes. The vulnerable groups are, but not limited to: persons with disabilities; the low-qualified/-skilled; minorities; persons of migrant background, including refugees; people with fewer opportunities due to their geographical location and/or their socioeconomically disadvantaged circumstances.
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2025). National anti-poverty strategy: Portugal. In Cedefop, & ReferNet. (2025). Timeline of VET policies in Europe (2024 update) [Online tool].
https://www.cedefop.europa.eu/en/tools/timeline-vet-policies-europe/search/41446