Main objectives and current policies 

According to the draft law regarding the new Legal Framework for Higher Education Institutions, the main objectives are:

• To emphasise the importance of advanced scientific, vocational and technical training
• To permit the binary system to evolve and become more flexible, reflecting the rapprochement that has taken place in recent years between university and polytechnic subsystems.
• To create a more competitive, diverse and innovative higher education system
• To increase HEI’s capacity to respond to regional, national and European challenges
• To enable co-operation and co-ordination of training provision between HEIs
• To encourage the higher education network to be more efficient regarding the use of resources, while preserving access throughout the country.

The government has submitted a proposal to Parliament to revise the Legal Framework for Higher Education Institutions. The revision of the Legal Framework for Higher Education Institutions will strengthen HEI’s ability for strategy and action, contributing to the rationalisation of the higher education network, via consortia or processes of merger and integration.

The administrative and financial autonomy of HEIs has been consolidated to guarantee greater stability, predictability and transparency regarding the management of their budgetary resources and research units.

The revision of the Legal Framework for Higher Education Institutions means:

1. Consolidating HEIs autonomy to facilitate the definition and implementation of development strategies that improve their international positioning and contribute to national development and regional cohesion
2. Reflecting on the binary nature of the higher education system in the context of greater autonomy for HEIs. This enables the definition and development of strategies that are specific to each institution and appropriate to its context
3. Reviewing the HEI governance model
4. Creating the conditions for rationalising the network, making the higher education system more robust, more competitive in international terms, contributing to strengthening territorial cohesion and ensuring accessibility to higher education throughout the territory.

In the area of higher education, science and innovation, three strategic objectives for 2025 stand out:

1. Review the legal framework and career statute for HEI teachers;

a) A new Legal Framework for Higher Education Institutions was submitted to Parliament to substitute the one in force since 2007, through a draft bill submitted to Parliament in February 2024. The four main areas of change are: the binary university/polytechnic system and rationalisation of the network; autonomy; governance; and other changes, such as limits on the recruitment of doctoral graduates by the institution awarding the degree or opening up the evaluation and accreditation processes for institutions and their courses to national accreditation agencies from EU member states. 

b) A new approach to defining the allocation of tax revenue to HEIs was designed to insulate these bodies from the effects of legislative decisions that affect their budgetary situation. This measure, which was part of the 2025 State Budget, offers stability, predictability and transparency regarding the guarantee of budgetary resources for HEIs. This allows them to assert their autonomy by defining and implementing development strategies that strengthen their international positioning and contribute to national development and regional cohesion.

c) A revision of the Scientific Research Career Statute was submitted to Parliament, aiming to modernise, stabilise and make the research career more attractive and in line with European Union principles, allowing permanent hiring and mobility between careers. 

2.Improve student access, success and well-being

3.Harnessing scientific excellence - in addition to their contribution to the region’s and country’s human capital, HEIs and organisations in the scientific and technological system have been outstanding for the quality of their research, advancing the frontier of knowledge and technological development in various areas..

Organization of the higher education system

Portuguese higher education includes the university and polytechnic systems. The reorganisation of the system and the rationalisation of the network of higher education institutions are planned, if the new Legal Framework for Higher Education Institutions is approved by the Portuguese Parliament.

The  Education Act (Law No. 46/86, 14 October), amended by Laws 115/97, 19 September, 49/2005, 30 August and 85/2009, 27 August and 16/2023, 10 April, establishes, via the 2005 amendment, the adoption of the three study cycle model that leads to three types of academic degrees:

• Bachelor’s degree (Licenciatura) - 1st cycle degree programme
• Master’s degree (Mestrado) - 2nd cycle degree programme
• Doctorate (Doutoramento) - 3rd cycle degree programme).

It also establishes the need to create conditions that provides access to lifelong learning for all citizens.

In pursuit of those goals, the legal system for higher education degrees and diplomas was approved via Decree-Law No 74/2006, 24 March, and later amended by Decrees-Law No 107/2008, 25 June, No 230/2009, 14 September and No 115/2013, 7 August.

The adoption of tools for the creation of the European Higher Education Area, in particular the ECTS credit system and the Diploma Supplement, had been established with the approval of Decree-Law No 42/2005, 22 February, later amended by Decree Law No 107/2008, 25 June.

According to this legislation, the academic year can be divided into years, semesters, terms or another duly detailed form. Generally speaking, the academic year is divided into two semesters with breaks lasting around one to two weeks (maximum 3). Some advanced study programmes (ISCED 7, for example) can also be structured into terms.

In any of these cases, a full-time academic year lasts between 1,500 and 1,680 hours, which is the equivalent of between 36 and 40 weeks.

According to the legislation, higher education institutions (universities and polytechnics) have statutory, pedagogical and scientific autonomy with regard to the state, and are responsible for scheduling academic activity and holidays.

As such, the first semester usually begins between the first and third week of September and ends in February. During the first semester there is a seven-to-ten-day break for the Christmas holidays. The second semester begins in February and finishes at the end of July. During this semester there is a three-day break for the Carnival season (a date that changes every year and usually occurs in February) and one or two weeks for the Easter holidays (also a movable date that takes place in March or April).

The assessment calendar is set by the responsible legal body provided for in the statutes, after consultation with the scientific or technical-scientific council and the pedagogical council. Normally there are two examinations periods:

- the first between the end of December and the first week of February.

- the second between the beginning of June and the end of July.

For more information, see the academic calendar.

As a complement to Decree-Law No 74/2006, the Agency for Assessment and Accreditation of Higher Education (Agência de Avaliação e Acreditação do Ensino Superior - A3ES) was created via Decree-Law No 369/2007, 5 November and is an independent body responsible for assessing and accrediting higher education institutions and their study cycles as part of higher education quality assurance system.

The legal framework for higher education assessment applied by the A3ES is approved by Law No 38/2007, 16 August.

The study cycles leading to academic degrees lacks accreditation by the Agency for Assessment and Accreditation of Higher Education and subsequent registration with the Directorate General for Higher Education. This registration implies general validity of the degree(s) granted.

Law No 62/2007, 10 September, amended by Law No 16/2023, 10 April, establishes the legal framework for higher education institutions, regulating their creation, duties and organization, the operation and responsibilities of their different bodies and even the overseeing and supervision by the state, as part of its autonomy.

The general access and enrolment system in higher education is established by Decree-Law No 296-A/98, 25 September, in the wording of Decree-Law No 64-A/2023, 31 July.

There are special enrolment processes regulated by Decree-Law No 113/2014, 16 July, amended by Decree-Law No 63/2016, 13 September, No 11/2020, 2 April, No 77-A/2021, 27 August and No 64-A/2023, 31 July,  which are designed for candidates with particular academic achievement profiles, such as:

• Students who have passed exams ministered to assess the ability to attend higher education of those students over 23.
• Holders of a technological specialisation diploma.
• Holders of a Technical Higher Education diploma.
• Holders of other higher education qualifications.
• Holders of a bachelor degree for entering Medicine.
• International students.
• Holders of upper secondary level dual certification courses and specialised artistic courses.

Decree-Law No 11/2020, 2 April, created the special application system for higher education for holders of dual certification courses in upper secondary education and specialised artistic courses.

The special application is voluntary and available to higher education institutions, universities and polytechnics, which can now provide a new entrance route to first cycle degrees and integrated master’s, matching specific skills of graduates of the educational and training provision covered by this decree law.

All students, including those on vocationally oriented courses, can apply for the National Access Application for all courses. In these cases, students can take the national final exams they choose as entrance exams for higher education, when they intend to enter study cycles that are only entered via the appropriate routes for students with science-humanities education.

Law No 37/2003, 22 August, establishes the funding basis of higher education, which is based in a three-way relationship between the state and HEIs, students and HEIs, and the state and students. This law was amended by Law No 49/2005, 30 August, by Law No 62/2007, 10 September, by Law No 7-A/2016, 30 March, by Law No 42/2016, 28 December, by Law No 68/2017, 9 August, by Law No 114/2017, 29 December, Law No. 42/2019, 21 June and by Law No 75/2019, 2 September.

As part of the amendment of Decree-Law No 74/2006, 24 March, by Decree-Law No 63/2016, 13 September, the rules governing vocational and technical higher education were incorporated into the legal framework for higher education degrees and diplomas. This is because the technical higher education diploma granted by these courses is a higher education diploma.

In February 2023, the 23rd Constitutional Government revised the higher education access system, employing a process of reflection and public discussion between the education and higher education ministerial departments.

For further information about ongoing reforms in higher education see Subchapter 14.4 National Reforms in Higher Education.

High education in numbers

The higher education system in Portugal currently has 97 higher education institutions (HEIs), 34 of which are public, ensuring good coverage, playing a very important role in access to higher education. In the 2023-2024 academic year, there were 448,235 students enrolled in higher education, with 359 395 enrolled in public higher education. In terms of study cycles, in 2023-2024, 62% attended bachelor's degrees, 19% master's degrees and 6% doctorates.

Number of students enrolled by type of institution and study cycle in the academic year 2023-2024 - Portugal 

There are currently 5,546 higher education courses on offer, 77% of which are provided by public higher education institutions and 23% by private ones.

Distribution of students enrolled by level of training, 2022/23.

Students enrolled by NUTS I and II and course/study cycle – Portugal (2022/23)

Source: Education Statistics 2022/2023, Directorate-General for Education and Science Statistics (DGEEC). Notes: (1) includes ‘1st cycle bachelor's degree’ and ‘1st cycle bachelor's degree preparation’ programmes; (2) includes ‘integrated master's degree preparation’, ‘integrated master's degree’ and ‘Terminal integrated master's degree’ programmes.

For the 2022/23 academic year, it is also possible to show the distribution of the fields of study of graduating students by region.

Graduates in academic year 2022/23, by NUTS I and II and course/study cycle – Portugal

Source: Education Statistics 2022/2023, Directorate-General for Education and Science Statistics (DGEEC). 

The results of the RAIDES23 survey for the last two academic years (2022/2023 and 2023/2024) show that, of the number of students enrolled, around 29% were studying STEM subjects and almost 4% were enrolled in education.

Students enrolled in higher education establishments by area of education and training - 2022/23 and 2023/24 a)

Source: Survey of the Register of Students Enrolled in and Graduating from Higher Education. Notes: a) Includes those enrolled in international credit mobility - incoming.  Includes those enrolled in all courses/study cycles taught in higher education establishments, except those enrolled in preparing a dissertation, project work or final internship and those enrolled in specialisations that do not meet the following cumulative requirements: as a rule, entry with a degree; number of ECTS credits no fewer than 60; number of contact hours no fewer than 300, spread over two academic semesters and subject to final assessment.

For an overview of the profile of students enrolled in higher education in Portugal, see the illustrated summary of the publication Enrolled in the 2023/2024 academic year - Results of the RAIDES 2023 survey (DGEEC).

More statistical information regarding higher education can be found at: Education Statistics 2022/2023, Directorate-General for Education and Science Statistics (DGEEC);

• Survey on the Register of Students Enrolled in and Graduating from Higher Education, Directorate-General for Education and Science Statistics (DGEEC);
• Education in Numbers Portugal - 2024, Directorate-General for Education and Science Statistics (DGEEC)

Foreign student statute

International students can access undergraduate studies and integrated Master’s studies  through a special access application (Decree-Law No 36/2014, 10 March, amended and republished by Decree-Law No 62/2018, 6 August and amended by Decree-Law No 77-A/2021, 27 August).

The current International Student Statute, which facilitates access to Portuguese higher education for foreign students, states that public institutions may set different tuition fees, taking into account the real cost of training.

These students will be admitted exclusively through the above-mentioned special application. Candidates can apply if they have a diploma that allows access to higher education in the country where it was obtained, or if they have completed Portuguese upper secondary education or an equivalent study cycle.

In accordance with the higher education funding law, state institutions may set different fees, taking into account the actual cost of the training course.

The approval of this legislation does not affect the special arrangements for access and admission to higher education for scholarship students from African Portuguese-speaking countries, within the framework of cooperation agreements signed by the Portuguese State.

It is important to note that this legislation is part of the strategy of internationalization of higher education.

Students enrolled in higher education by country of foreign nationality (top 20)

(1) Includes students enrolled in international mobility; (2) Includes other less frequent countries. 

For further information about ongoing reforms on Higher Education see Subchapter 14.4 National Reforms in Higher Education.