Loading

Portugal

HAS ENDORSED THE POLITICAL DECLARATION

Portugal was actively involved in the process to develop a Political Declaration on the use of explosive weapons in populated areas and was among the first group of states to endorse the Political Declaration in Dublin in November 2022. Portugal made several written contributions to the process, welcoming the reaffirmation of current international humanitarian law (IHL) and its applicability to the use of explosive weapons in populated areas, and suggesting the inclusion of an express reference to the obligation to not impede humanitarian access. 1 In addition, Portugal suggested highlighting some of the effects that the use of wide-ranging explosive weapons has on the environment, from the point of view of the survival of the civilian population. To maintain the Declaration’s focus on the protection of civilians, it suggested that this environmental reference include a note about safeguarding of natural resources essential to human life (namely as regards soil and groundwater). 2  

Statements and positions

Portugal attended the first international implementation conference on the Political Declaration in Oslo, Norway in April 2024, and the second implementation conference in San Jose, Costa Rica in November 2025. In San Jose, Portugal reaffirmed its “unwavering support and commitment to the full implementation of the EWIPA Declaration as an essential instrument to protect civilians and uphold international humanitarian law” and underlined the “unacceptable harm” use of explosive weapons continues to cause to civilians and civilian infrastructure. Portugal emphasised the long-term impacts of explosive weapons, stating that “injuries often require specialized medical and psychosocial care that is rarely available, healthcare facilities are frequently destroyed, and explosive remnants continue to threaten civilians and hinder reconstruction long after conflict ends” and referencing the way in which “widespread devastation dramatically increases post-conflict recovery costs and disrupts development, agriculture, and the return of displaced populations”. It also referred to the gendered impacts of explosive weapons use, noting that “destruction of civilian infrastructure and housing, along with the resulting displacement, increases the risk of gender-based violence, particularly as women and girls are driven into irregular settlements and forced migration”. 3 

In its statement at the Oslo conference, Portugal emphasised the widespread harm caused by explosive weapons when these are used in populated areas, and acknowledged the direct and indirect effects, including on the natural environment, which in turn has harmful impact on human health. It highlighted the importance of data collection and suggested that publishing reports of key domestic implementation measures would be a good way to identify useful policies and practices. Portugal stated that implementation was the responsibility of all states and should be shared with civil society and other states. 4  

Portugal has on several occasions spoken on explosive weapons in populated areas in multilateral forums. During the UN Security Council open debate on the protection of civilians in 2025, Portugal called on States to “restrict the use of explosive weapons in populated areas” and cited the situation in Ukraine “where frequent attacks on urban centres have caused extensive damage to basic infrastructure, particularly affecting healthcare and educational facilities, with severe impacts on children”. It also decried the situation in Sudan, saying States “cannot close their eyes to the impacts of widespread artillery shelling and strikes in populated areas of the Sudan, which have caused massive casualties and the largest internal displacement ever recorded.” 5

At the 2022 open debate, Portugal said it remained concerned about the disproportionate use of explosive weapons in populated areas and their impact on civilians and civilian infrastructure. It supported the ongoing process developing a Political Declaration on the subject and called for the implementation of resolution 2601 (2021), on safeguarding the right to education, and resolution 2573 (2021), on critical civilian infrastructure, among other resolutions. 6 At the UN Security Council Open Debate on the Protection of Civilians in Armed Conflict in May 2023 Portugal said it was encouraged by positive steps taken regarding the protection of civilians, including the Political Declaration on explosive weapons in populated areas. 7 At the same debate in 2024, Portugal reiterated its full support for the Political Declaration and its role in the application of the full protection of civilians as presented in the report of the Secretary-General. 8 At the UN Security Council Open Debate War in Cities: Protection of Civilians in Urban Settings on 25 January 2022, Portugal welcomed the development of the Political Declaration and said it is a good example of encouraging best practices based on IHL. 9 At the Meeting of the High Contracting Parties of the Convention on Certain Conventional Weapons, Portugal highlighted the Political Declaration, underlined its commitment to the Declaration and its aims, and praised Norway and Costa Rica as organisers of the first and second follow-up conferences on the implementation of the Declaration, respectively. 10
 
Alongside its individual statements, Portugal has repeatedly aligned with other states to deliver statements on explosive weapons in populated areas. As a member of the European Union (EU), Portugal has signed onto numerous joint statements condemning the use of explosive weapons in populated areas and the harms it causes to civilians and civilian objects, as well as calling for greater IHL compliance and welcoming the Political Declaration. This includes at several UN Security Council open debates on the protection of civilians in armed conflict 11, including in 2024 when it expressed deep concern about the use and humanitarian consequences of explosive weapons in populated areas ‘which has significant civilian impact and should thus be restricted and avoided’12 as well as at the 2022 UN Security Council open debate on war in cities where the EU expressed concern over the indiscriminate use of explosive weapons in populated areas, including near hospitals, schools, and universities 13 and at the UN General Assembly’s First Committee. 14 Portugal also aligned with the World Humanitarian Summit Core Commitments to ‘Uphold the Norms that Safeguard Humanity’ as an EU member state in May 2016. This included the commitment “to promote and enhance the protection of civilians and civilian objects, especially in the conduct of hostilities, for instance by working to prevent civilian harm resulting from the use of wide-area explosive weapons in populated areas, and by sparing civilian infrastructure from military use in the conduct of military operations.” 15 

As a member of the Group of Friends on Protection of Civilians, Portugal has supported statements at the UN Security Council stressing the importance of respecting IHL and the need to enhance the protection of civilians from the effects of explosive weapons in populated areas. 16 In the 2024 statement, the Group called on states to make the effective protection of civilians and civilian objects a strategic priority in the planning and conduct of military operations by drawing on existing tools herein, such as the Political Declaration, a sentiment the Group echoed at the 2025 debate where it flagged the Political Declaration as a tool that “plays a critical role in the protection of civilians” and encouraged states to consider endorsing. 17 In 2018 and 2019, Portugal joined some 50 and 71 states respectively to endorse joint statements on the use of explosive weapons in populated areas at the UN General Assembly First Committee, calling attention to the devastating and long-lasting humanitarian impact of the use of explosive weapons in populated areas and urging states to reverse the trend of high levels of civilian harm. 18

Statements and positions

In February 2024, INEW and EWM conducted a survey into endorser states' national efforts to disseminate and implement the Political Declaration; and in May 2025 EWM conducted a second survey. 19 In its 2025 response, Portugal reported that the  Directorate-General for Foreign Policy (Direção-Geral de Política Externa) within the Ministry of Foreign Affairs (MFA) had been designated as the primary focal point responsible for coordinating Portugal’s efforts to implement the Declaration. The MFA works in coordination with the Ministry of National Defence, and following the endorsement of the Political Declaration, the MFA disseminated its content to relevant ministries and armed forces. 20 

On reviewing and developing national policy and practice, Portugal reported that within its Ministry for National Defence, there are several initiatives related to explosive weapons, some of which are integrated in European agencies with international collaboration. Portugal also (with Austria, France, and Spain) coordinates the PESCO project, which uses 3D modelling of urban damage and detonation effects to refine understandings of explosive weapon impact and improve targeting decisions. On adopting military policies and practices, data collection and sharing, and victim assistance, Portugal referenced its memberships in NATO and EU, and international agreements, conventions and treaties it has signed, stating it follows best practices and standards set out in these. 21

  1. ‘Written Submissions to the Consultations on explosive weapons in populated areas Elements Paper’. Permanent Mission of Portugal to the United Nations 10 February 2020. https://reachingcriticalwill.org/images/documents/Disarmament-fora/ewipa/declaration/documents/written-submission-Portugal.pdf.

  2. 'Follow-up Conference Explosive Weapons in Populated Areas (EWIPA) Statement by Portugal’. 19 November 2025. https://reachingcriticalwill.org/images/documents/Disarmament-fora/ewipa/second-conference/statements/19Nov_Portugal.pdf.

  3. ‘Portugal Contribution to the Project of Political Declaration on EWIPAs’. Permanent Mission of Portugal to the United Nations. March 2020.  https://reachingcriticalwill.org/images/documents/Disarmament-fora/ewipa/declaration/documents/Portugal-March2020.pdf. 

  4. Reaching Critical Will, Notes from the first international follow-up conference on the Political Declaration in Oslo, Norway. April 2024.  

  5. United Nations Security Council. S/PV.9921 (Resumption 1) 22 May 2025. https://docs.un.org/en/S/PV.9921%20(Resumption%201). 

  6. United Nations Security Council. S/PV.9042. 25 May 2022. https://undocs.org/en/S/PV.9042(Resumption1). 

  7. United Nations Security Council (2023). ‘Security Council Open Debate on the Protection of Civilians in Armed Conflict Meeting Transcript’. https://undocs.org/en/S/PV.9327(Resumption1). 

  8. United Nations Security Council (2024) S/PV.9632 (Resumption 1), 21 May, p.20, https://documents.un.org/doc/undoc/pro/n24/140/54/pdf/n2414054.pdf. 

  9. Acheson, R. 2022. ‘UN Security Council Debates War in Cities and the Protection of Civilians.’ Reaching Critical Will, 28 January 2022. https://www.reachingcriticalwill.org/news/latest-news/16009-un-security-council-debates-war-in-cities-and-the-protection-of-civilians.

  10. ‘79th United Nations General Assembly First Committee Cluster 4 – Conventional Weapons’ 24 October 2024. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com24/statements/24Oct_Portugal.pdf. 

  11. EU Statement - UN Security Council: Protection of Civilians’, 21 May 2024. https://www.eeas.europa.eu/delegations/un-new-york/eu-statement-%E2%80%93-un-security-council-protection-civilians_en?s=63; ‘EU Statement during the May 2011 Security Council Open Debate on the Protection of Civilians in Armed Conflict’. Permanent Mission of the European Union to the United Nations. 10 May 2011.  http://www.peacewomen.org/sites/default/files/eu_poc_11may2011_0.pdf; ‘EU Statement during the June 2012 Security Council Open Debate on the Protection of Civilians in Armed Conflict’. Permanent Mission of the European Union to the United Nations. 25 June 2012. http://www.peacewomen.org/security-council/security-council-open-debate-protection-civilians-armed-conflict-june-2012/; ‘EU Statement during the August 2013 UN Security Council Open Debate on the Protection of Civilians in Armed Conflict’. Permanent Mission of the European Union to the United Nations. 19 August 2013. http://www.peacewomen.org/sites/default/files/european_union_poc_august_2013_debate_0.pdf ; EU Statement – UN Security Council: Protection of Civilians.’ Permanent Mission of the European Union to the United Nations. 21 May 2024. https://www.eeas.europa.eu/delegations/un-new-york/eu-statement-%E2%80%93-un-security-council-protection-civilians_en?s=63. 

  12. ‘EU Statement to the UN General Assembly 72nd Session First Committee Thematic Discussion on Conventional Weapons’. Permanent Mission of the European Union to the United Nations. 18 October 2017. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com17/statements/18Oct_EU.pdf. 

  13. Acheson, R. 2022. ‘UN Security Council Debates War in Cities and the Protection of Civilians.’ Reaching Critical Will, 28 January 2022. https://www.reachingcriticalwill.org/news/latest-news/16009-un-security-council-debates-war-in-cities-and-the-protection-of-civilians. 

  14. ‘EU Statement to the UN General Assembly 80th Session First Committee Thematic Discussion on Conventional Weapons’. Permanent Mission of the European Union to the United Nations. 23 October 2025. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com25/statements/23Oct_EU.pdf; ‘EU Statement to the UN General Assembly 78th Session First Committee Thematic Discussion on Conventional Weapons’. Permanent Mission of the European Union to the United Nations. 23 October 2023. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com23/statements/23Oct_EU.pdf; ‘EU Statement to the UN General Assembly 77th Session First Committee Thematic Discussion on Conventional Weapons’. Permanent Mission of the European Union to the United Nations. 20 October 2022. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com22/statements/20Oct_EU.pdf; ‘EU Statement to the UN General Assembly 76th Session First Committee Thematic Discussion on Conventional Weapons’. Permanent Mission of the European Union to the United Nations. 4 October 2021. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com21/statements/4Oct_EU.pdf; ‘EU Statement to the UN General Assembly 75th Session First Committee Thematic Discussion on Conventional Weapons’. Permanent Mission of the European Union to the United Nations. 9 October 2020. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com20/statements/9Oct_EU.pdf. 

  15. Agenda for Humanity Archives. ‘Portugal’. https://agendaforhumanity.org/stakeholders/commitments/242.html. 

  16. United Nations Security Council. S/PV.9327. 23 May 2023. https://undocs.org/en/S/PV.9327(Resumption1). 

  17. Group of Friends on Protection of Civilians, ‘SC: Joint statement on the Protection of Civilians’, 21 May 2024. https://www.norway.no/en/missions/un/statements/security-council/sc-2024/sc-statement-on-behalf-of-the-group-of-friends-of-protection-of-civilians/. 

  18. ‘UNGA73 First Committee Joint Statement on Explosive Weapons in Populated Areas (explosive weapons in populated areas)’. Permanent Mission of Ireland to the United Nations. 25 October 2018. https://reachingcriticalwill.org/images/documents/Disarmament-fora/1com/1com18/statements/25Oct_explosive weapons in populated areas.pdf; ‘UNGA74 First Committee Joint Statement on Explosive Weapons in Populated Areas’. Permanent Mission of Ireland to the United Nations. 24 October 2019. https://article36.org/wp-content/uploads/2019/10/UNGA74-joint-statement-on-explosive-weapons-in-populated-areas.pdf; ‘Seventy-one States call for Action on Impact of Explosive Weapons in Joint Statement to UN General Assembly’. International Network on Explosive Weapons. October 2019. https://www.inew.org/seventy-one-states-call-for-action-on-impact-of-explosive-weapons-in-joint-statement-to-un-general-assembly/. 

  19. To view all responses to the state surveys, see the Explosive Weapons Monitor 2023, Chapter III on Universalisation and Implementation of the Political Declaration and EWMs Assessment of Implementation of the Declaration (2025).

  20. EWM. ‘An Assessment of Implementation of the Political Declaration on Explosive Weapons in Populated Areas: Briefing Paper’. November 2025. https://explosiveweaponsmonitor.org/reports/8/an-assessment-of-implementation-of-the-political-declaration/; and Portugal’s response to EWM’s State Survey on the Implementation of the Political Declaration, July 2025.

  21. Ibid.

Other State Positions