Portuguese Gov’t Aims to Double Citizenship Timeline to 10 Years

Portugal may raise the bar for citizenship, but Portuguese Golden Visa experts warn: Nothing’s official yet.

Portugal’s center-right government has proposed sweeping changes to immigration policy that would double the residency requirement for citizenship from five to ten years for most foreigners. The measures require a two-thirds parliamentary majority for approval, making passage uncertain despite representing the most restrictive naturalization proposal in decades as the country grapples with record immigration levels.

Foreigners from Portuguese-speaking nations, including Brazil, Angola, and Mozambique, would face a seven-year wait, while all other applicants must remain legal residents for a full decade before applying.

Cabinet Minister António Leitão Amaro described the changes as addressing “the requirement of an effective connection, of belonging to the national community.”

The new framework would introduce cultural literacy tests alongside existing language proficiency requirements. The new system would require that applicants demonstrate familiarity with Portuguese culture, declare support for democratic principles, and maintain a completely clean criminal record. Previous rules permitted applicants with prison sentences under three years to qualify.

Portugal’s foreign population has nearly tripled since 2019, reaching 1.6 million residents who comprise roughly 15% of the country’s 10.5 million inhabitants. Brazilians constitute the largest immigrant group at more than 450,000 legal residents, according to the Agency for Integration, Migration and Asylum (AIMA).

The policy shift reflects mounting political pressure from the far-right Chega party, which emerged as the main opposition force in recent elections.

Immigration restrictions formed a central plank of Chega’s campaign platform, and the party has pledged parliamentary support for the new measures.

Impact on the Golden Visa Program

The changes will likely impact Portugal’s Golden Visa program. Portugal issued a record 4,987 golden visas in 2024, marking a 72% increase from the previous year, according to AIMA data. These investors previously qualified for citizenship after five years but may now face the ten-year timeline.

Pedro Oliveira, Executive Board Member at Optimize Investment Partners, points out that the government’s comments “addressed immigration policy broadly and made no specific reference to the Golden Visa program, which has always operated under its own legal framework.”

He notes that “there is no discussion about changing key Golden Visa rights, such as residence requirements, family reunification, or minimum stay obligations,” adding that “the government is reportedly considering introducing a new tax regime that could make the program even more attractive.”

Sara Sousa Rebolo, Partner at Prime Legal, concurs that “yesterday’s statements made no reference to the Golden Visa,” leading her to believe that “Golden Visa applicants and those under the highly qualified activity categories may still benefit from more favorable conditions and status.”

This aligns with recent statements by Cabinet Minister Amaro, who promised to make the Golden Visa more attractive and efficient after the summer, she notes.

Vanessa Rodrigues Lima, Partner at Prime Legal, notes that while the proposed changes “may reshape expectations,” the Golden Visa may not suffer as it “still offers a path to permanent residency after five years, without requiring relocation or ongoing investment.”

She argues that while “citizenship has always been a long-term goal,” the “flexibility of Portugal’s residency framework continues to be attractive.”

The government has also proposed tightening family reunification rules under the new framework. Legal residents would need to wait two years before bringing relatives to Portugal, and only minor children would qualify for family visas.

The government estimates that more than 400,000 citizenship applications remain pending as of January.

Portugal naturalized 141,300 people in 2023, representing a 20% decline from the previous year despite growing application volumes. The government has simultaneously approved measures to establish a dedicated border police force and strip citizenship from naturalized Portuguese convicted of serious crimes.

The cabinet also proposed terminating a program granting nationality to descendants of Sephardic Jews with Portuguese ancestry. Amaro characterized the reforms as “essential changes for the times in which we live,” emphasizing that the government was “strengthening the requirements for access to citizenship, naturalization, in line with the guidelines we were already included in the government’s program.”

Legislative Path and Uncertain Timeline

The government must still formally submit the draft legislation to the Assembleia da República before parliamentary proceedings can begin. Once filed, Parliament will conduct three readings and a committee review of the bill, though the legislation requires a two-thirds majority for passage.

Oliveira urges careful interpretation of the announcement, noting that “at this stage, no draft law has been published, and the measure is still under discussion.”

He emphasizes that the Minister’s recent statements on extending Portugal’s naturalization period from five to ten years “must be interpreted with caution.”

Safak Nervo, COO at Optylon Krea, reinforces this perspective, noting that “this is a proposed bill, meaning it still needs to go through the appropriate legislative process, including debate, revision, and approval.” Drawing from past experience, she observes that “the final outcome often diverges significantly from the initial proposal,” citing how “the Golden Visa wasn’t abolished entirely as initially announced, but rather limited to specific routes such as investment funds.”

Madalena Monteiro, founder of Liberty Legal, echoes these cautionary voices, arguing that “we must be very cautious regarding what is being said because people are treating this like a done deal, but it still has to go through the parliamentary process and pass with two-thirds approval.”

She expects “significant changes to what is currently proposed” and emphasizes that “this is still a proposal only.” Monteiro anticipates the process “will follow the same legislative process as when the government proposed to close the Golden Visa in 2023,” noting there is “no indication that this may be opened to public discussion, yet.”

Rebolo emphasizes that “the legislative process is still at a very early stage.” She recalls that “we all remember the twists and turns it took in 2023 (when it took over seven months to be concluded), and the significant difference between the Government’s initial statements and the law that was ultimately approved.”

Rebolo remains “confident that there will still be room for dialogue and, above all, protection for investors with ongoing applications.”

Following parliamentary approval, President Marcelo Rebelo de Sousa would have 20 days to either sign the legislation, veto it, or refer it to the Constitutional Court for review. The president can challenge laws he deems unconstitutional, though such referrals are rare on immigration matters.

Rebolo notes that “this is a sensitive legal area with direct implications for society, economy, and constitutional rights.” She expects the legislation will “naturally require broader political consensus for its approval, as well as careful scrutiny from both the President and the Constitutional Court.”

If the President does sign off on it, Portugal will publish the new rules in the official gazette, the Diário da República, and implement them within weeks.

The legislation represents Portugal’s most restrictive naturalization overhaul in decades as the country joins a broader European trend toward tighter immigration controls amid rising populist influence.

The move contrasts with Portugal’s approach to investor migration, where officials have emphasized maintaining the Golden Visa program even as Spain eliminated its program in April.

Nervo provides context for the policy’s true targets, noting that “Golden Visa applicants represent only a small fraction of total immigration figures.”

She explains that “the primary concern behind this proposal appears to be the large number of individuals entering Portugal on tourist visas, staying under the radar, paying social security for a few years, and then including extended family members in citizenship applications.”

She argues that the Commission driving this initiative “seems focused on this profile, not those entering through legal residency-by-investment pathways like the Golden Visa.”

Despite the uncertainties, Rebolo remains optimistic about Portugal’s investment migration future. She believes “the current Government intends to make the system more efficient and appealing” and expects “the current issues with AIMA will be resolved during 2025.”

She argues that “the ongoing legislative reform can create new opportunities and maintain the confidence of foreign investors, even if it may require greater connection to the country.” This approach reflects “the broader European trend,” she notes, “and it would be unwise to ignore it.”

Nervo shares this optimistic outlook, expecting that “the final version will reflect greater balance, especially considering Minister Amaro’s recent positive statements about maintaining the GV and possibly enhancing its benefits with tax advantages.”

However, she cautions that “if these changes are passed without carve-outs for investment-based residency holders, it could seriously damage investor sentiment and the credibility of the market.”

Rodrigues Lima calls for dialogue with policymakers about the broader implications. She argues that “like in 2023, it is again time for the industry’s stakeholders to join forces in communicating to the Government the real, practical impact of foreign investment” and the need to respect “legitimate legal expectations that have been created and should now be respected.”

Rebolo advocates for a balanced approach to migration reform, arguing that “in the area of migration, it is essential to ensure equity and proportionality in the proposed solutions, distinguishing between different types of cases and adopting fair and balanced approaches.”

She emphasizes the need to “uphold the security of Portuguese and European territory, protect core values and culture, and maintain the country’s attractiveness to foreign investment through programs that respond to its concrete needs.”