Policies on Border Controls
The border management policy has had to adapt to significant events, such
as the unprecedented arrival of refugees and irregular migrants. Furthermore,
since mid-2015, several gaps have been identified in the EU’s policies on
external borders and migration. The challenges associated with increasing mixed
migration flows to the EU, the COVID-19 pandemic, and rising security concerns
have triggered a new phase of activity regarding the protection of the EU’s
external borders, which also has implications for its internal borders.
Schengen Area
The Schengen Area is one of the key
achievements of the European project. It is the world’s largest free movement
zone, comprising 30 European countries with a common policy that allows the
mobility of people without internal border controls. This cooperation enables
citizens of member countries to travel between participating nations without
the need for a passport or visa, as if they were moving within a single
country. In addition to the free movement of people, the Schengen Area also
facilitates the circulation of goods, although it does not include a unified
customs policy.
Governance and Security in the Schengen Area
The governance of the Schengen Area is based on joint decisions by the Member
States, ensuring the strict implementation of established policies and
standards. The main bodies responsible for the governance of the area are the
Council of the European Union and the European Commission, with additional
support from the European Border and Coast Guard
Agency (Frontex), which plays a crucial role in monitoring and coordinating the security of
the Schengen Area’s external borders.
Schengen Evaluation Cycle
The Schengen cycle is a regular evaluation and monitoring mechanism of the
policies and practices of each Member State, aimed at ensuring the consistent
application of Schengen standards. This cycle typically takes place every five
years and includes on-site inspections and assessments carried out by
independent experts appointed by the Commission.
Portugal's objectives and role in the Schengen Area
Portugal became a member of the Schengen Area on 26 March 1995, recognised
for its Atlantic geographical position and strong ties to the Mediterranean and
Latin worlds. Portuguese foreign policy is based on key pillars: Europe, the
Atlantic, the Portuguese-speaking world, and the Mediterranean, relations that
are also reflected in its actions within the Ministry of Home Affairs (MAI).
Portugal is recognised for its ability to foster dialogue, balance, and
tolerance, remaining committed to the values of the democratic rule of law,
human dignity, and a strong sense of responsibility in its international
actions.
External Borders
The management of the EU’s external borders is a shared responsibility
among all Member States and the EU, particularly its relevant institutions and
agencies.
The European Border and Coast Guard Agency (Frontex) closely monitors the
EU’s external borders and collaborates with Member States to identify and
swiftly respond to security threats at the external borders.
Strengthening the EU’s External
Borders.
Police Cooperation The European Union promotes and seeks to strengthen police cooperation internally and with third countries in a joint effort to combat a wide range of crimes. It develops and implements campaigns, policies and operational actions through the law enforcement authorities of all Member States, including police forces, customs and other services in the areas of investigation, detection, prevention and combating new and emerging threats to their internal security.
The Convention implementing the Schengen Agreement imposes a number of obligations on police cooperation at their common internal borders, at external borders and within the Schengen area, in the context of the abolition of external border controls.
European Security Agenda
The new Internal Security Strategy (ProtectEU) is part of a comprehensive framework for a safe, secure and resilient EU that includes, in addition to this Strategy, the Union Preparedness Strategy, the European Defence White Paper and the future European Democracy Shield, and stems from the urgent need to anticipate, prevent, detect and respond to current and emerging threats, understand the link between the internal and external security of the Union, and help dispel perceptions of insecurity generated by organised crime networks, terrorist and/or extremist threats, and hybrid threats.
More details at: New Internal Security Strategy
Counterterrorism
The new Internal Security Strategy prioritizes a preventive and resilient approach to combating terrorism and violent extremism.
This includes deradicalisation programmes, combatting extremist online propaganda, engaging the local communities and the civil society. The strategy also provides for crisis response, support for victims, and actions to manage the consequences of attacks, ensuring a rapid and coordinated recovery. In cooperation with international partners, the EU aims to address the root causes of violent extremism while protecting citizens and upholding the rule of law and fundamental rights.
Documents prior to the Strategy: Counter-Terrorism Agenda for the EU: Anticipate, Prevent, Protect, Respond and Conclusions of the European Council meeting (10 and 11 December 2020)
Radicalisation
The EU Knowledge Hub for the Prevention of Radicalisation (EU KH) supports EU Member States in creating preventive policies against radicalisation that could lead to violent extremism. Adopting a multidisciplinary collaborative approach, the EU KH promotes the sharing of knowledge and experience among experts, supports coordinated responses in education, social cohesion and security, and connects public authorities, researchers, and civil society. The goal is to improve the understanding of the causes of radicalisation and to enhance prevention at the local and national levels by sharing best practices among Member States.
More information at: EU Knowledge Hub on Prevention of Radicalisation - European Commission.
European Crime Prevention Network
The European Crime Prevention Network (EUCPN) was created in 2001 to prevent organised crime and support national and local actions by Member States.
The EUCPN aims to facilitate cooperation and the exchange of information among professionals, collecting and disseminating best practices, organising conferences and the European Crime Prevention Prize, providing technical support to the Council and the European Commission, submitting annual reports and developing work programmes based on existing threats.
Through Order No. 9404/2016, of 22 July, Portugal’s representation is ensured by the General Secretariat of the Ministry of Home Affairs and the Judiciary Police.
More information at: EUCPN.
Operational cooperation – EMPACT Policy Cycle 2026-2029
In 2025, the Council of the European Union approved the strengthening of the European Multidisciplinary Platform Against Criminal Threats (EMPACT) and the EU's crime priorities for the new policy cycle 2026-2029. This mechanism is a necessary and crucial tool for promoting cooperation between various agencies and law enforcement authorities, facilitating collaboration and information sharing, and ensuring the necessary financial support for Member States.
The priorities for the 2026-2029 policy cycle are: mapping criminal and organised crime networks, strengthening the fight against online crime, combating drug and human trafficking, identifying networks linked to arms and explosives trafficking, preventing and combating environmental crime, and strengthening investigations into economic and financial crime.
More details at: EMPACT 2026-2029
Civil Protection The TFEU also predict, in Title XXIII, actions to support, coordinate and complete member states’ action concerning civil protection.
The European Union seeks to ensure better civil, environmental and material protection in case of any natural or technologic disasters.
The EU action aims to:
- Support and complete member states’ action at the national, regional and local levels in regard of risk prevention, preparation of civil protection authorities in the member states and intervention in the event of a natural or man-made disasters in the Union;
- Promote agile and efficient operational cooperation in the Union between civil protection national services;
- Improve the consistency of civil protection actions’ developed at the international level;
- EU Civil Protection Mechanism
The EU Civil Protection Mechanism, established in 2001, aims to facilitate enhanced cooperation among national civil protection authorities across the EU. It enables a more rapid and effective response to emergencies. Since its launch in 2001, the EU Civil Protection Mechanism has already been activated by numerous occasions of emergency. European Agencies EU agencies are distinct bodies from the EU institutions – separate legal entities set up to perform specific tasks under EU law. The European Agencies cover different subjects for example concerning Migration, Asylum, Borders and Police Cooperation. FRA - European Union Agency for Fundamental Rights
The EU Agency for Fundamental Rights (FRA) provides independent, evidence-based advice to EU and national decision makers, thereby helping to make debates, policies and legislation on fundamental rights better informed and targeted. It advises EU institutions and national governments on fundamental rights, particularly in the areas of discrimination, access to justice, racism and xenophobia, data protection, victims’ rights and children's rights. The FRA aims to help promote and protect fundamental rights more effectively across the EU. This Agency is an independent body from EU, funded by the Union’s budget.
FRONTEX - European Border and Coast Guard Agency
FRONTEX’s mission is to promote, coordinate and develop the European borders’ management according to Charter of Fundamental Rights of the European Union and the concept of integrated border management. This Agency helps EU countries and Schengen associated countries manage their external borders. It also helps to harmonise border controls across the EU. The agency facilitates cooperation between border authorities in each EU country, providing technical support and expertise. FRONTEX actions’ are focused in joint operations, which has the participation of the EU state-members, concerning three different domains: land, sea and air. Each of these operations are based in a risk analysis.
Eu-LISA - European Agency for the operational management of large-scale IT systems in the area of freedom, security and justice
Established in 2011 and operational since 1 December 2012, eu-LISA is responsible for support the implementation of the EU’s Justice and Home Affairs policies by managing large-scale IT systems. It provides the technical and operational framework in an area of freedom, security and justice, managing three main IT systems dealing with visas, asylum requests and sharing information to guarantee the security of the Schengen Area: the Visa Information System (VIS), the Schengen Information System (SIS II) and Eurodac. In response to Schengen area’s challenges, this Agency may also be responsible for the development and operational management of others information systems and to contribute to the interoperability between large-scale IT.
EASO - European Asylum Support Office
EASO plays an important role in the implementation of Common European Asylum System, promoting practical cooperation with and between state-members. The aim is to ensure the principles of equity and justice and guarantee that all Member States deal with individual asylum cases in a coherent way. The support, given also by the European Commission, is extremely relevant in situations when asylum systems take a disproportional migration pressure that can be solved by supporting teams specialised in asylum issues. This Agency was established in 2010 through Regulation (EU) 439/2010 of the European Parliament and of the Council, beginning its operations in 2011. It is estimated that the negotiation on strengthening its competences with a view to amending the Office for a future European Asylum Agency will take place-by the end of June 2018.
CEPOL - European Union Agency for Law Enforcement Training
CEPOL contributes to a safer Europe by facilitating cooperation and knowledge sharing among police officers in EU countries and in some non-EU countries on issues based on the EU’s security priorities, and especially on the EU policy cycle on serious and organised crime. This Agency aims to become an excellent hub and a driver of change in the law enforcement-training field. The agency also works with EU bodies, international organisations, and non-EU countries to ensure that there is a collective response to the most serious security threats. CEPOL is a European Agency since its legal mandate that started in July 1st 2016 (Regulation (EU) 2015/2219 of the European Parliament and of the Council that replaced and repeal Decision 2005/681/JAI of Council)
The European Police Office (Europol) is the EU law enforcement agency, whose remit is to help make Europe safer by assisting law enforcement authorities in EU member countries. Established in 1999, EUROPOL aim to give national partners a deeper insight into the criminal problems they face, Europol produces regular long-term analyses of crime and terrorism. This law enforcement agency works as an information core about criminal activities in the EU and supports the most complex international operations. Besides that, it collaborates as well with third countries and international organizations. What we do The International Relations Department of General Secretariat of MHA is responsible for supporting the members of government in policies’ definition and execution concerning the EU. Guarantee the coordination of foreign affairs between every MHA services. Analyse and give legal opinion about legislative proposals of the European Union, coordinating the representation and MHA’s position in the specific negotiation and following the transcript to domestic legal framework. Keep up with the activity of Court of Justice of the European Union related with the litigation and pre-litigation of Portugal in areas regarding MHA responsibilities. Update an information system about normative provisions in the EU.
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