Safe Village and Safe People (Aldeia Segura Pessoas Seguras) are two complementary programmes created by Council of Ministers Resolution 157-A/2017 in Portugal to protect people in the urban/forest interface. The programmes respond to the risk of wildfires in areas where communities and forests intersect (urban/forest interface), aiming to reduce wildfire impacts on people, property, and infrastructure. The programmes combine both structural measures (protection zones, safe havens, shelters) with awareness-raising actions (preventing risk behaviour, evacuation drills, population preparedness for wildfires). The programmes engage local communities directly, involving volunteers to act as liaisons with civil protection authorities and even participate in awareness-raising media. More than 2,200 villages have joined the programme, and nearly 2,100 Local Safety Officers have been nominated.
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Safe Village and Safe People
General Information
Involvement of communities and local authorities to reduce wildfire risks.
Wildfire risk in Portugal has increased dramatically due to climate change, inadequate forest management, and rural depopulation. Major events such as the 2017 wildfires highlighted the need for structured, integrated strategies. Experience showed that citizens were more likely to respond to awareness campaigns when messages came from trusted local community members. This context led to the development of policies and agencies focused on landscape-based prevention, training, and coordinated response, laying the groundwork for programmes like Safe Village and Safe People.
Needs Addressed
It was created to address the severe threat posed by rural fires in Portugal, particularly after the catastrophic events of 2017 that revealed serious gaps in prevention, preparedness, and community protection. Many small villages and isolated houses located at the urban–forest interface were highly vulnerable due to inadequate land management, limited defensible spaces, and a lack of awareness among residents about self-protection measures. The challenge was not only the structural exposure of these areas to fire, but also the absence of effective communication systems, evacuation planning, and community engagement.
The programme pays special attention to vulnerable groups within rural communities who face greater risks during wildfires. These include elderly residents, children, people with reduced mobility, bedridden individuals, and those with chronic health conditions. Seasonal populations, such as tourists, emigrants returning in summer, or temporary workers, are also considered vulnerable due to their limited knowledge of the local territory and emergency procedures. For instance, the programmes use awareness campaigns supported by media and leaflets in multiple languages for tourists. In addition, socially isolated individuals and households without access to private transport are at higher risk during evacuations. Addressing the needs of these groups is central to ensuring that evacuation plans, shelters, and communication systems are inclusive and effective.
Portugal has a decentralised and multi-level governance system. The programmes are implemented through a dual-level model, with strategic oversight by the Portuguese Civil Protection Authority, which sets national standards and awareness campaigns, and operational implementation by municipalities and parishes, which mobilise communities, enforce local measures, and encourage participation.
The programmes reflect advanced preparedness. Portugal's emergency preparedness includes national guidance, organised awareness campaigns, evacuation drills, designation of shelters and safe havens, local enforcement, and community mobilisation. With the Safe Village and Safe People programmes, over 12,000 citizens have participated in more than 400 drills, and more than 900 evacuation plans have been implemented.
Portugal’s infrastructure readiness for wildfire risk can be considered advanced resilient, as it includes protection zones for clusters and infrastructure, preparation of over 2800 safe havens and shelters through the aforementioned programmes, identification of critical points in the urban/forest interface, and coordinated action between local and national levels.
The purpose of engagement is to increase public awareness of wildfire risks, reduce risky behaviours, encourage the adoption of self-protective measures, and ensure communities are prepared for safe evacuation or sheltering during wildfire events. This is realised through a strong multistakeholder collaboration.
The programmes implement a range of engagement methods, including awareness-raising initiatives to reduce fire ignition risks, information campaigns on wildfire risks and protective behaviours, evacuation drills with municipalities, and the preparation of safe havens and shelters. These activities are supported by media campaigns and leaflets in multiple languages for tourists, local volunteer participation, implementation of evacuation plans, and distribution of evacuation kits.
Communities are not only informed and trained but also actively engaged through local safety officers, volunteer participation, and direct involvement in awareness-raising, evacuation drills, and the implementation of evacuation plans. Their input and participation directly shape the programmes' effectiveness, and responsibility is shared between authorities and citizens in both planning and action.
The programmes build capacity and long-term empowerment by training citizens, involving local safety officers, and fostering shared responsibility, which strengthens both immediate preparedness and lasting community resilience.
Hazard Type
Geographical Scope - Nuts
Geographical Scope
Population Size
Population Density
Vulnerable Groups
Governance
Emergency Preparedness
Infrastructure Readiness
Engagement Level
Empowerment Level
Implementation
The programmes combine structural protection measures, such as protection zones and safe havens, with behavioural change campaigns. It operates through a dual-level governance model, integrating strategic national coordination with operational local implementation. Evacuation drills and local mobilisation are used to build community trust and encourage active participation. Local volunteers act as mediators and participate in media campaigns, which increases reach and effectiveness.
Portuguese and English
The programme is implemented by ANEPC (National Authority for Emergency and Civil Protection), in cooperation with ANMP (National Association of Portuguese Municipalities) and ANAFRE (National Association of Parishes).
The actors involved have strong experience in disaster risk management. ANEPC is Portugal’s central authority for emergency and civil protection, with extensive expertise in planning, coordination, and response. ANMP and ANAFRE bring the operational capacity of municipalities and parishes, ensuring local-level implementation, community mobilisation, and proximity to citizens. This combination allows for both strategic oversight and effective local engagement in DRM.
The programmes are implemented through a dual-level model, with strategic oversight by the National Authority for Emergency and Civil Protection (ANEPC), which sets national standards and awareness campaigns, and operational implementation by municipalities and parishes, which mobilise local communities and volunteers, enforce local measures, and encourage participation.
- Establishment of a national protocol
- Development of national standards and awareness campaigns (strategic level)
- Local enforcement by municipalities and parishes (operational level)
- Implementation of structural protection zones, awareness campaigns, evacuation drills, and safe havens
The resources needed for the implementation of the programme include financial support for media campaigns, educational materials, and logistics; human resources such as trained local safety officers, volunteers, and municipal staff; and material resources like evacuation kits, supporting equipment for local officers (vests, megaphones, backpacks), and shelter infrastructure (emergency lighting, first aid kits). Coordination between national and local levels also requires administrative and technical resources.
The programmes were established in 2017 by Council of Ministers Resolution, and their implementation is still ongoing through national-local cooperation and is planned to continue until at least 2030. Detailed phases are not available.
Experience of the Implementing Organisation in DRM
Target Audience
Resources Required
Timeframe & Phases
Participation Results
Information on lessons learned from the implementation of these two programmes is not available.
Protection of built-up areas: Identify vulnerable rural zones, promote defensible spaces, and strengthen community training and self-protection measures; local councils and residents collaborate through drills and equipped self-protection groups, making citizens the first line of defence.
Prevention of risky behaviour: Target local high-risk activities and specific groups with awareness campaigns using direct contact, simple language, and visual aids.
Awareness-raising and notification systems: Ensure real-time communication of wildfire risks and protective measures through local networks, technology, and public spaces, complementing national platforms with clear, practical messages.
Evacuation of built-up areas: Tailor plans for high-risk villages, coordinating resources, shelters, and timing while prioritising vulnerable residents; involve community participation, training exercises, and clear communication of routes and refuge locations, using lessons from drills to improve preparedness.
Places of shelter and refuge: Identify fire-resistant buildings or open-air spaces within villages to protect residents from flames, heat, smoke, and airborne debris.
Self-protection measures: Reinforce knowledge through awareness materials and interactive activities, giving residents practical guidance to act safely during wildfires.
The strategies described cover multiple levels of wildfire risk management: protecting built-up areas, preventing risky behaviour, establishing real-time awareness and notification systems, planning evacuations, designating shelters, and teaching self-protection measures. All of these elements collectively form a structured approach to reduce wildfire risks, protect populations, and ensure timely and safe responses during emergencies.
Risk & Mitigation Plan
Scalability and Sustainability
The programmes are ongoing, with plans to continue until at least 2030 and future initiatives to maintain and expand preparedness measures, media campaigns, and material support for citizens and shelters.
Given their structured approach, community involvement, and use of both national guidance and local implementation, the programmes could be scaled and adapted to other areas at high risk of wildfires, particularly where local volunteers and community networks can be mobilised to increase awareness and preparedness.
Technology and innovation play a supportive but important role in these programmes. They are used for national warning systems, awareness-raising campaigns through media, and the dissemination of information in multiple languages to reach both residents and tourists. Innovation lies in the combination of traditional community engagement with modern preparedness tools such as evacuation kits and structured drills, as well as in the integration of local safety officers into communication strategies. This mix enhances trust, accessibility, and the effectiveness of preparedness actions.
Information on direct costs for the implementation of the programmes is not available.
Information on operational costs for the implementation of the programmes is not available.
The programmes were established in 2017 by Council of Ministers Resolution, and their implementation is still ongoing through national-local cooperation and is planned to continue until at least 2030. Detailed phases are not available.