Teles, Helena; Júnio , Temís ocles Oli ei a; Caei o, Joaquim
A icle
Building a decen aliza ion index in Po ugal: A p oposal
on concep ual and me hodological ounda ions
Adminis a i e Sciences
P o ided in Coope a ion wi h:
MDPI – Mul idisciplina y Digi al Publishing Ins i u e, Basel
Sugges ed Ci a ion: Teles, Helena; Júnio , Temís ocles Oli ei a; Caei o, Joaquim (2025) : Building
a decen aliza ion index in Po ugal: A p oposal on concep ual and me hodological ounda ions,
Adminis a i e Sciences, ISSN 2076-3387, MDPI, Basel, Vol. 15, Iss. 5, pp. 1-16,
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Ci a ion: Teles, H., Júnio , T. O., &
Caei o, J. (2025). Building a
Decen aliza ion Index in Po ugal: A
P oposal on Concep ual and
Me hodological Founda ions.
Adminis a i e Sciences,15(5), 187.
h ps://doi.o g/10.3390/
admsci15050187
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licenses/by/4.0/).
A icle
Building a Decen aliza ion Index in Po ugal: A P oposal on
Concep ual and Me hodological Founda ions
Helena Teles * , Temís ocles Oli ei a Júnio and Joaquim Caei o
Ins i u o Supe io de Ciências Sociais e Polí icas, Cen o de Adminis ação e Polí icas Públicas, Unidade de
Coo denação de Se iço Social e Polí ica Social, Uni e sidade de Lisboa, 1300-663 Lisbon, Po ugal
*Co espondence: [email p o ec ed]
Abs ac : Decen aliza ion is a p ocess ha allows local go e nmen s o play a mo e ac i e
ole in decision-making and he managemen o public policies. This p ocess in ol es
ans e ing esponsibili ies, esou ces, and au ho i y om cen al o local go e nmen s,
b inging he decisions and p o ision o public se ices and policies close o he needs o
ci izens in each egion. Po ugal es ablished a egime o asymme ic, mul i-le el, and mul i-
sec o al decen aliza ion go e nance ha is p ima ily ocused on he policy (adminis a i e)
dimension. This s udy p oposes concep ual and me hodological ounda ions o building a
decen aliza ion index in Po ugal aimed a measu ing and compa ing i s ou comes ac oss
municipali ies and policy a eas o he social domain. The concep ual ounda ions enable a
model ha combines he s a e capaci y concep wi h he h ee-dimensional decen aliza ion
heo y, de ining a amewo k o dimensions, objec i es, and p inciples wi h po en ial
indica o s o a u u e index. The me hodological co ne s ones p o ide a quali a i e
scheme o de e mining he indica o s ha should comp ise he decen aliza ion index,
da a collec ion, p ocessing me hods, and analy ical s a egies. Al hough decen aliza ion in
Po ugal da es back o he mid-2010s and he ans e o compe ences is o mally comple e
as o 2023, a leas in he social domain, i s e alua ion alls sho o wha is needed, including
measu ing i s esul s in his domain. This s udy aims o p esen p oposals ha add ess
hese gaps and encou age a c i ical deba e on decen aliza ion, i s amewo ks, p ocesses,
and esul s.
Keywo ds: decen aliza ion; measu emen ; Po ugal
1. In oduc ion
Decen aliza ion is a undamen al pilla o he e o m agenda in many coun ies,
including Po ugal. This concep is associa ed wi h egimes and p ocesses ha empowe
subna ional ju isdic ions o decide, manage, and deli e public policies. I in ol es ans-
e ing esponsibili ies, esou ces, and au ho i y om he cen al o local go e nmen s o
ensu e e ec i e esponses o ci izens’ demands (Falle i,2010;Ha guindéguy e al.,2019;
OECD,2019).
Po ugal es ablished a egime o asymme ic, mul i-le el, and mul i-sec o al decen-
aliza ion go e nance ha is p ima ily ocused on he policy (adminis a i e) dimension.
This decen aliza ion egime ou lined a ans e p ocess ha p oduced a ying esul s
ac oss municipali ies and policy a eas, including hose ela ed o educa ion, heal h, and
social ac ion, which o m he social domain (Assembleia da República,2013,2018a;DGAL,
2023b;T ibunal de Con as de Po ugal,2023).
This s udy p oposes concep ual and me hodological ounda ions o building a de-
cen aliza ion index in Po ugal aimed a measu ing and compa ing i s ou comes ac oss
Adm. Sci. 2025,15, 187 h ps://doi.o g/10.3390/admsci15050187
Adm. Sci. 2025,15, 187 2 o 16
municipali ies and policy a eas o he social domain. To his end, i examines legisla ion
and epo s on decen aliza ion in Po ugal, he echnical and scien i ic li e a u e on he
subjec , and public policy e alua ion and indica o s.
These concep ual ounda ions enable a model ha combines he s a e capaci y concep
wi h he h ee-dimensional decen aliza ion heo y, de ining a amewo k o dimensions
and Po uguese decen aliza ion’s objec i es and p inciples wi h po en ial indica o s o
a u u e index. The me hodological co ne s ones p o ide a quali a i e scheme o de e -
mining he indica o s ha should comp ise he decen aliza ion index, da a collec ion,
p ocessing me hods, and analy ical s a egies.
Al hough decen aliza ion in Po ugal da es back o he mid-2010s and he ans e
o compe ences has been o mally comple ed since 2023, a leas in he social domain (see
DGAL,2023a,2023b,2024), i s e alua ion alls sho o wha is needed, including he
measu emen o i s esul s in such a domain (T ibunal de Con as de Po ugal,2023).
Fu he mo e, no indices, models, o panels we e ound o p o ide a comp ehensi e
and cohe en assessmen o decen aliza ion esul s; ins ead, he e we e only e o s limi ed
o speci ic a eas, such as heal h o educa ion, o o municipali ies o g oups (see OECD,
2020). This s udy aims o p esen p oposals ha add ess hese gaps and encou age a c i ical
deba e on decen aliza ion, i s amewo ks, p ocesses, and esul s.
2. O e iew o he Decen aliza ion P ocess in Po ugal
Be o e p oposing he ounda ions o a decen aliza ion index in Po ugal, his s udy
p o ides an o e iew o ecen decen aliza ion in his coun y’s con ex , highligh ing i s
ema kable ele ance and secula dimension as a c ucial issue h oughou he o ma ion
and e olu ion o he na ional s a e. In o he wo ds, Po ugal was ma ked by pe iods
be ween mo e cen i ugal o cen ipe al powe dis ibu ion since i s mona chical e a, which
began in he 12 h cen u y and con inued du ing i s epublican con empo anei y om
1910 onwa ds (Caei o,2015,2018).
The decen aliza ion p ocess in he cu en Po uguese democ acy has, as i s p ima y
miles ones, A icles 6 and 237 o he 1976 Cons i u ion, which a ibu ed a cons i u ional
s a us o subsidia i y, he au onomy o local go e nmen s, and adminis a i e decen aliza-
ion. Howe e , his p ocess only gained ac ion a e he massi e iscal c isis a he end o
he 2000s and he condi ionali ies o in e na ional assis ance in he ea ly 2010s (Minis é io
Adjun o e dos Assun os Pa lamen a es,2011;OECD,2020;Sil a,2017).
The legal amewo k o decen aliza ion eme ged in his con ex and was inaugu a ed
by Law nos. 75/2013 and 73/2013 ha app o ed he Legal Regime o he T ans e o
Compe ences (RLTC) and he Financial Regime o Local Au ho i ies and In e municipal
En i ies (RFALEI) (Conselho de Minis os,2012;Sil a,2017). The basic ou line o his
p ocess was comple ed a e i e yea s by Law no. 50/2018, he ‘F amewo k Law’ on he
ans e o powe s o local au ho i ies and in e municipal en i ies, and Law no. 51/2018,
which c ea ed he Decen aliza ion Financing Fund (FDD), including i in he RFALEI.
The decen aliza ion egime ha eme ged om his legal amewo k in Po ugal
ocuses on he adminis a i e (o policy) dimension, which is be e explained in he nex
sec ion. Fu he mo e, such a p ocess ollows he p emise ha ans e ing compe ences
b ings decisions and implemen a ion o public policies close o ci izens and should be
aimed a he ollowing:
1. Imp o ing he quali y o public se ices o popula ions;
2. Enhancing uni e sali y and equali y o access o public se ices;
3. Ensu ing pe manen and anspa en moni o ing;
4. P omo ing social pa icipa ion in he e alua ion o decen alized se ices;
5. Ampli ying he e iciency and e ec i eness o public managemen ;
Adm. Sci. 2025,15, 187 3 o 16
6. P omo ing e i o ial cohesion;
7. Rein o cing in e egional solida i y;
8. P omo ing ins i u ional and social a icula ion, including a in e -le els;
9. Gua an eeing local inancial, adminis a i e, and o ganiza ional au onomy;
10.
T ans e ing inancial, human, ma e ial, and in as uc u e esou ces;
11.
Ensu ing s abilized unding o he ans e ed compe ences;
12.
P e en ing he inc ease in o e all public expendi u e (Assembleia da República,2013,
2018a;T ibunal de Con as de Po ugal,2023).
To achie e hese objec i es, he Po uguese egime is based on h ee ins i u ional
pilla s: p inciples and gua an ees, a decen aliza ion a angemen , and he dis ibu ion o
new subna ional compe ences by policy a eas.
Rega ding he i s pilla , he p inciple o uni e sali y e e s o he na ional go -
e nmen ’s du y o ans e compe ences and espec i e esou ces wi hin he scope o
decen aliza ion o all municipali ies. Howe e , such a ans e mus be condi ioned by he
cha ac e is ics o municipali ies; ha is, his p ocess should be paced and o ien ed owa ds
subna ional ju isdic ions ha a e mos sui able o exe cising i (Assembleia da República,
2013,2018a).
The e a e wo p inciples ocused on he conc e iza ion p ocess o decen aliza ion.
Fi s , he ans e o compe ences should occu g adually a a pace ha depends on sec o al
egula ions ela ed o each policy a ea and he cha ac e is ics o subna ional au ho i ies.
Second, his p ocess and i s associa ed esou ces a e subjec o ongoing and anspa en
moni o ing (Assembleia da República,2018a).
The o he p inciples a e mo e linked o decen aliza ion objec i es. The gua an ees o
local au ho i ies de e mine ha he ans e mus also p ese e hei inancial, adminis a-
i e, and o ganiza ional au onomy. In addi ion, inancial, human, and ma e ial esou ces,
as well as physical s uc u es, should also be ans e ed o hem o suppo he new
compe ences. Fu he mo e, in e eno s om such ju isdic ions mus ha e access o he
in o ma ion he na ional adminis a ion uses o manage his p ocess as well as compe ences.
Addi ionally, s able unding mus be a ailable o implemen he ans e ed compe ences
(Assembleia da República,2018a,2018b).
Finally, e i o ial cohesion and equal access ensu e ha he ans e o compe ences
aims o mi iga e dispa i ies be ween e i o ies and deli e be e public policies o he
popula ion wi hou undue di e ences and in a manne ha educes social and economic
inequali ies. O he p inciples o decen aliza ion include he pu sui o quali y in public
se ices and he enhancemen o he e ec i eness and e iciency o public managemen
(Assembleia da República,2018a).
The pilla ela ed o he decen aliza ion a angemen ep esen s a mul i-le el se
o s uc u es. A he na ional le el a e he Cen al Adminis a ion (CA), he Regional
Coo dina ion and De elopmen Commissions (CCDR), and he Decen aliza ion Moni-
o ing Commission (CAD). A he subna ional le el a e he in e municipal en i ies (EIM),
local au ho i ies (LAs), and pa ish councils (PCs) (Assembleia da República,2013,2018a;
OECD,2020).
I is wo h no ing ha he sec o al egula ions on decen aliza ion o each policy a ea
also es ablish di e se echnical, moni o ing, and o e sigh commissions, which a y in
e ms o loca ion wi hin he go e nmen le els and du a ion, e en among he mos ele an
a eas ela ed o ‘social domains’ (T ibunal de Con as de Po ugal,2023, p. 75). Rega ding
social ac ion, he moni o ing commission is na ional and pe manen , whe eas in educa ion
and heal h, i is municipal and has a manda e ha expi es on 31 Decembe 2026 (Conselho
de Minis os,2019a,2019b,2020,2022a,2023).
Adm. Sci. 2025,15, 187 4 o 16
The CA ep esen s he se o cen al go e nmen bodies esponsible o e i o ial
cohesion and decen aliza ion a ha le el, wi h emphasis on he Gene al Di ec o a e o
Local Au ho i ies (DGAL) (Assembleia da República,2013;OECD,2020). In addi ion, i
includes he a ious na ional bodies esponsible o he policy a eas and public se ices
in ol ed in decen aliza ion, ans e ing hei compe ences and in luencing he p ocess,
such as some uni s and commi ees wi hin he s uc u es o minis ies ela ed o educa ion,
heal h, and social ac ion (Conselho de Minis os,2019a,2019b,2020;OECD,2020).
The CAD was es ablished wi h a du a ion o up o 31 Decembe , 2024, o o e see he
p ocess and assess he adequacy o inancial esou ces, comp ising ep esen a i es om
pa liamen a y g oups, he na ional go e nmen , he Na ional Associa ion o Po uguese
Municipali ies, and he Na ional Associa ion o Pa ishes (Conselho de Minis os,2022b).
The CCDRs deconcen a e speci ic esponsibili ies o CA bodies ac oss di e en egions,
ocusing on coo dina ing en i onmen al policies, e i o ial planning, and egional de el-
opmen while also suppo ing LAs and associa ions a he subna ional le el (Assembleia
da República,2013;OECD,2020).
The EIMs ep esen olun a y associa ions o municipali ies o g oups o municipali-
ies. These en i ies ha e hei go e nance bodies, including an in e municipal assembly
composed o membe s elec ed by he assemblies o he membe municipali ies and an
in e municipal council comp ising he mayo s o he espec i e municipali ies. They pe -
o m a ious unc ions, including de eloping egional s a egic plans, coo dina ing public
in es men , managing communi y unds, and implemen ing egional de elopmen p ojec s
(Assembleia da República,2013;OECD,2020).
The LAs ep esen he 278 municipali ies on he mainland and a e he co e a ge o he
decen aliza ion p ocess. In some cases, compe ences delega ed o LAs can be ans e ed
o PCs, which become esponsible o deli e ing public policies o he popula ions o he
espec i e pa ishes wi hin he municipali ies (Assembleia da República,2013,2018a).
The pilla o he dis ibu ion o new compe ences de ines which powe s and esponsi-
bili ies among policy a eas all wi hin he scope o decen aliza ion. Also, i ensu es ha
each o hese a eas has i s sec o al egula ion and a angemen , as men ioned ea lie . The
decen aliza ion egime es ablished a leas 20 a eas o ans e ing, co e ing hose o
g ea s a egic and inancial impo ance, such as policies linked o he social domain, and
o he s ela ed o speci ic opics, such as beaches, housing, and po a eas, ha can be be e
le e aged locally (DGAL,2024;T ibunal de Con as de Po ugal,2023).
The exis ence o nume ous a eas is pa icula ly no able when combined wi h he ac
ha he p inciple o uni e sali y o he ans e is media ed by di e en ia ion among he
na u e o policy a eas and he cha ac e is ics o municipali ies.
The epo s’ indings by DGAL and he Po uguese Cou o Accoun s highligh he
exis ence o imbalances be ween subna ional ju isdic ions in assuming and implemen ing
he new compe ences among policy a eas (DGAL,2024;T ibunal de Con as de Po ugal,
2023,2024). The e a e also indica ions o challenges a ising om di e ences in he go e -
nance o decen aliza ion ac oss sec o s and limi a ions o inancial esou ces, including
hose om FDD (DGAL,2024;T ibunal de Con as de Po ugal,2023,2024), a si ua ion ha
sugges s his may ep esen ano he ele an ac o con ibu ing o such imbalances.
Among o he indings no ed by he Cou o Audi o s is he lack o up- o-da e s udies
o guide he planning and sizing o he esou ces o be made a ailable, which also makes i
possible o es ablish he pa ame e s ha indica e e iciency gains o he applicable inancial
c i e ia and he lack o comp ehensi e da a, which p e en s a na ional iew, and i is
also s iking (T ibunal de Con as de Po ugal,2023). Essen ially, as ou lined in Repo no.
4/2023 in he second sec ion, i ecommends “ensu ing he unc ioning o an in eg a ed
Adm. Sci. 2025,15, 187 5 o 16
ollow-up, moni o ing, and e alua ion s uc u e, capable o p o iding decision suppo ”
(T ibunal de Con as de Po ugal,2023, p. 80, in ee ansla ion).
The e o e, he Po uguese egime has es ablished an in iguing mul i-le el and mul i-
sec o al go e nance sys em, which also exhibi s cha ac e is ics o asymme ic decen al-
iza ion, as p oposed by Allain-Dup é e al. (2020) and OECD (2019). Fu he mo e, i s
decen aliza ion p ocess ep esen s mo e o a sys ema iza ion o pa allel pa hways o
ans e ing compe ences be ween di e en policy a eas han a single p ocess.
F om his o e iew, his s udy assumes ha , despi e a ious ac o s such as COVID
ha may ha e in luenced decen aliza ion, and al hough he ans e o compe ences has
been o mally comple ed since 2023, a leas in he social domain (see indings om DGAL,
2023a,2023b,2024), such a p ocess likely esul ed in a ied le els o achie emen ega ding
i s objec i es ac oss municipali ies and policy a eas in his domain.
Conside ing his scena io, a ho ough sea ch was conduc ed in he de elopmen o his
s udy o models, indica o s, and me hodologies ha enable he comp ehensi e measu e-
men and compa ison o decen aliza ion esul s be ween policy a eas and municipali ies.
The only in o ma ion ound indica ed he exis ence o e o s limi ed o speci ic a eas, such
as heal h o educa ion, o municipali ies o g oups o hem (see OECD,2020).
3. Concep ual Model o he Assessmen o Po uguese Decen aliza ion
He e, his s udy p oposes a model ha p o ides he concep ual ounda ions o a
comp ehensi e and cohe en assessmen o decen aliza ion in Po ugal, se ing as a i s
s ep o add ess he gap iden i ied in he p e ious sec ion. The concep o decen aliza ion
is commonly associa ed wi h e o ms o egimes ha empowe subna ional ju isdic ions
o decide, manage, and deli e public policies. I in ol es ans e ing esponsibili ies,
esou ces, and au ho i y om he cen al o local go e nmen s o ensu e e ec i e esponses
o ci izens’ demands (Falle i,2010;Ha guindéguy e al.,2019;OECD,2019).
This gene al concep ualiza ion enables us o assume ha he heo e ical esul s o
decen aliza ion can be di ided in o wo le els. Fi s , i should c ea e, enhance, o ampli y
hese esponsibili ies, esou ces, and au ho i y in subna ional go e nmen s as ‘ou pu s’.
Second, i assumes he p emise ha such go e nmen s, endowed wi h hese g ea e ‘capac-
i ies’, should be able o design and deli e be e public se ices and policies in esponse o
he needs o hei popula ions and e i o ies as ‘ou comes’.
The p oposed model assumes ha , a i s glance, he s a e capaci y concep can be
used o app oach he expec ed gene al decen aliza ion’s ou pu s and ou comes. Recen
s udies on decen aliza ion and local go e nance ha e adop ed he s a e capaci y lens
om a Webe ian pe spec i e, de ining i as he combina ion o adminis a i e, poli ical,
echnical, and ela ional powe s, abili ies, and esou ces go e nmen s employ o achie e
policy objec i es, c ea e social alue, and deli e public goods (G in e al.,2023;Weiss,1998;
and Williams,2020).
The li e a u e add esses he ela ionship be ween decen aliza ion and subna ional
s a e capaci ies in wo ways. Mos s udies explo e how p io local capaci ies a e a p e equi-
si e o he success o decen aliza ion p ocesses (Bello a o & Bes amille,2018;Di Ma o
e al.,2022;G in e al.,2023). O he compa a i e and case s udies highligh expe iences
whe e he limi a ions o decen aliza ion p ocesses in building capaci ies a he local le el
ha e esul ed in poo social and economic ou comes in a ge municipali ies (Ahmad &
Talib,2014;Bosse & Mi chell,2011;Fiszbein,1997;OECD,2019;Rumbach,2016;Se iawan
e al.,2022).
Upon close examina ion, his concep ual model is en iched by combining s a e capac-
i y wi h he h ee-dimensional heo y o decen aliza ion. The p e ailing pe spec i e in he
Adm. Sci. 2025,15, 187 6 o 16
li e a u e, in e na ional amewo ks, and go e nmen p oposals indica es ha decen aliza-
ion can be di ided in o he dimensions below:
•
The policy dimension en ails he ans e o compe ences o o mula ing, egula ing,
implemen ing, moni o ing, and e alua ing public se ices and policies. I should also
encompass he ans e o human esou ces, expe ise, in o ma ion, physical in as-
uc u e, asse s, and he necessa y inancial esou ces o suppo hem. These policy
capaci ies should lead o mo e sui able public se ices ha mee ci izens’ demands,
expand oppo uni ies o uni e sal and equal access, and achie e a mo e e icien and
e ec i e public adminis a ion.
•
The iscal dimension in ol es ans e ing powe s o manage e enues and expendi-
u es by inc easing manda o y inancial ans e s, in oducing new subna ional axes,
o g an ing subna ional ju isdic ions he iscal au ho i y o es ablish hei axes. I
can also include empowe ing local go e nmen s o de elop iscal ules, de ine hei
budge s, expand hei deb o unding, and pa icipa e in inancing p og ams om
in e na ional o p i a e unds. These iscal capaci ies should lead subna ional go -
e nmen s o a mo e cohe en and s able iscal amewo k o inancing hei public
se ices and policies owa ds he demands o each municipali y.
•
The poli ical dimension e e s o he ans e o poli ical au ho i y, enabling munici-
pali ies o conduc hei elec ions. Beyond his, i in ol es gua an eeing au onomy in
agenda se ing and decision-making, as well as a icula ing wi h o he go e nmen s,
bodies, and en i ies o a ious na u es and le els, while p omo ing social pa icipa-
ion, anspa ency, accoun abili y, and public engagemen in a ai s. These capaci ies
mus allow o p io i izing he in e es s and needs o he local popula ion o each
municipali y in he design and implemen a ion o se ices and policies as well as o
ein o cing he pa icipa ion o he a ious s akeholde s and he coope a ion be ween
o he ins i u ional in e eno s (Falle i,2010;G in e al.,2023;Ha guindéguy e al.,
2019; and OECD,2019).
This subdi ision does no imply ha hese dimensions canno be combined in de-
cen aliza ion e o ms. Tha is, e en i in-dep h o compa a i e case s udies sugges ha
speci ic e o ms we e mo e concen a ed in one dimension o ollowed in long ajec o ies,
o di e en sequences be ween policy, iscal, and poli ical e o ms, subna ional go e n-
men s should commonly assume esponsibili ies, esou ces, and powe s ela ed o he h ee
dimensions (Falle i,2010,2013;Sil a,2017; and Ta a es e al.,2018).
Examining he Po uguese case by his concep ual model, as shown in Table 1, i is
possible o indica e ha while some objec i es and p inciples add essed in he p e ious
sec ion ep esen he expec ed policy, iscal, and poli ical capaci ies o be ans e ed o
subna ional ju isdic ions as ou pu s, o he s can be associa ed wi h he expec ed ou comes
in his h ee-dimensional di ision.
This app oach is e en mo e ui ul when conside ing an assessmen o Po ugal by
he OECD and he Eu opean Commi ee o he Regions’ decen aliza ion index. Thei
esul s con i m ha he decen aliza ion egime ocuses on he policy dimension, bu i
has gene a ed s a e capaci ies a he local le el in he h ee dimensions. Fu he mo e, bo h
sugges ha Po ugal has an uppe le el in he poli ical dimension o decen aliza ion, a
egula le el in he policy dimension, and a lowe le el in he iscal dimension (Eu opean
Commi ee o he Regions,2020;OECD,2020).
Adm. Sci. 2025,15, 187 7 o 16
Table 1. P elimina y concep ual model o he assessmen o Po uguese decen aliza ion.
Dimensions Objec i es and P inciples Type o Resul
Policy
Uni e sal ans e ( o all municipali ies) o
compe ences wi hin he scope o decen aliza ion
Ou pu
T ans e o inancial, human, ma e ial, and
in as uc u e esou ces Ou pu
Access o all he in o ma ion needed o he
new compe ences Ou pu
Imp o emen o he quali y o public se ices o
local popula ions Ou come
P omo e e i o ial cohesion o he balanced and
ha monious de elopmen among municipali ies Ou come
Enhancemen o uni e sali y and equali y o
oppo uni ies o access o public se ices Ou come
Inc ease in e iciency and e ec i eness o (local)
public managemen Ou come
Recogni ion o he adminis a i e and
o ganiza ional au onomy o
subna ional go e nmen s
Ou come
Fiscal
Es ablishmen o s able unds o inancing he
decen aliza ion p ocess Ou pu
Main enance o o e all public expendi u e le els
(by municipali y and by a ea) Ou come
Recogni ion o he inancial au onomy o
subna ional go e nmen s Ou come
Poli ical
Gua an ee o pe manen and anspa en
moni o ing o decen aliza ion Ou pu
P omo ion o social pa icipa ion in he
e alua ion o decen alized se ices and policies
Ou pu
Rein o cemen o in e egional solida i y Ou come
P omo ion o ins i u ional and social a icula ion,
including a in e -le els Ou come
Sou ce: own elabo a ion, 2024.
These indings om he OECD and he EU Commi ee sugges po en ial explana ions
o he obse ed a ia ion in he numbe o objec i es and p inciples ac oss he di e en di-
mensions. The emphasis on he policy dimension is linked o he unde lying p emise o he
p ocess, which e lec s he designa ion o A icle 236 o he Cons i u ion as ‘adminis a i e
decen aliza ion’. Wi h ega d o he poli ical dimension, i is essen ial o no e ha hese
indings indica e a highe deg ee o poli ical decen aliza ion, which may be a eason o
he exis ence o less ela ed objec i es. No e idence was iden i ied o cla i y he unde lying
a ionale ega ding he lowe p io i iza ion o he iscal dimension.
A u he s ep is equi ed owa ds a concep ual model ha enables he e alua ion
o decen aliza ion in Po ugal, allowing o he measu emen and compa ison o he
achie emen o i s objec i es ac oss municipali ies and policy a eas. The public policy
li e a u e discusses a ious indica o s o measu ing, analyzing, and moni o ing (Amado,
2020;Ne o & Gehlen,2018;IPDET,2007;Kusek & Ris ,2004). In his sense, indica o s
a e c ucial o e alua ing he ex en , e ec i eness, and impac o public policies and
es ablishing a moni o ing sys em (Ne o & Gehlen,2018).
Adm. Sci. 2025,15, 187 8 o 16
Table 2p esen s some po en ial indica o s o Po uguese decen aliza ion ha can
cap u e and con ey hese esul s, conside ing he p oposed municipal and sec o al g anu-
la i y. The indica o s gene a ed by his model should enable he iden i ica ion o e i o ial
dispa i ies by policy a ea, e ealing une en implemen a ion pa e ns and suppo ing mo e
con ex -sensi i e s a egies. Beyond his, hey mus allow o he sys ema ic e alua ion o
decen aliza ion ou pu s and ou comes, guiding e idence-based policy adjus men s and
imp o ing he alignmen be ween objec i es and ac ual pe o mance.
Table 2. Final concep ual model o he Po uguese decen aliza ion.
Dimensions Objec i es and P inciples Po en ial Indica o s by
Municipali y and A eas
Policy
Uni e sal ans e ( o all
municipali ies) o
compe ences wi hin he scope
o decen aliza ion
•Compe ences ans e ed om
AC bodies
•Compe ences assumed by subna ional
go e nmen s
T ans e o inancial, human,
ma e ial, and in as uc u e
esou ces
•HR ans e ed om he AC bodies o
suppo new compe ences
•
Financial esou ces ans e ed om he
cen al go e nmen o suppo new
compe ences
•Ma e ial esou ces and in as uc u es
ans e ed om he AC bodies o
suppo new compe ences
Access o all he in o ma ion
needed o he new
compe ences
•In o ma ion on decen alized policies
a ailable o he AC bodies
•In o ma ion on decen alized policies
a ailable o subna ional go e nmen s
Imp o emen in he quali y o
public se ices o local
popula ions
•Use sa is ac ion wi h decen alized
public se ices
•Ra e o imely esolu ion o se ice
eques s and p ocesses
P omo ion o e i o ial
cohesion o he balanced and
ha monious de elopmen
among municipali ies
•Unbalance in economic dimensions
ac oss a ious opics (GNP,
unemploymen a e, pu chasing powe
pe capi a, e c.)
•Unbalance in social dimensions ac oss
a ious opics (a e age li e expec ancy,
ea ly school lea ing a e, popula ion
wi h highe educa ion, doc o s pe
inhabi an , social esponse co e age
a e, e c.)
•Unbalance in he en i onmen and
sus ainabili y ac oss a ious opics
Enhancemen o uni e sali y
and equali y o oppo uni ies
o access o public se ices
•Popula ion wi h access o essen ial
public se ices in hei municipali y o
esidence
•Co e age a e o decen alized se ices
pe a ge g oup
•Te i o ial dispa i y in access o
decen alized public se ices
Adm. Sci. 2025,15, 187 15 o 16
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