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If you are planning construction or renovation in Portugal, you may encounter the procedure known as Prior Communication n for Building Works (“Comunicação Prévia”). This administrative process is part of the Portuguese urban planning framework and allows certain construction activities to proceed without undergoing the full traditional licensing procedure.
Understanding when prior notification applies—and how it differs from a building permit with the planning procedure (Licenciamento)—is essential for property owners, developers, architects, and businesses planning construction or renovation projects.
In this article, we explain what prior notification means under Portuguese law, how it works, which works are subject to it, and how consultations with external authorities are handled.
WHAT IS A PRIOR COMMUNICATION PROCEDURE FOR BUILDING WORKS?
A Prior Communication (Comunicação Prévia) is an administrative procedure of prior urban planning control that allows certain construction works to proceed after submitting a formal notification to the municipality.
This procedure is defined under the RJUE – Legal Framework for Urbanization and Building (Regime Jurídico da Urbanização e Edificação).
Through prior communication, the applicant informs the municipality of the intention to carry out building works. If the submission complies with the applicable planning instruments and legal requirements, the works may proceed without waiting for a formal approval decision.
In practical terms, the municipality does not explicitly approve the project. Instead, the submission is reviewed and may be rejected if it does not comply with the legal framework.
PRIOR COMMUNICATION VS. PLANNING BUILDING PERMIT: WHAT IS THE DIFFERENCE ?
Although both procedures involve municipal oversight, prior communication and planning building permit operate differently in terms of administrative control.
PLANNING BUILDING PERMIT (Licenciamento)
In a licensing process, the municipality or other competent authorities must formally review and approve the project before construction can begin.
The application may be:
- approved
- approved with conditions
- rejected
This process usually involves a more detailed technical assessment and longer review periods.
LEGAL COMPLIANCE OF URBAN PLANNING OPERATIONS
Even when the prior notification is not rejected, all urban planning operations carried out under this procedure must fully comply with applicable regulations.
This includes compliance with:
- municipal territorial planning instruments
- urban planning regulations
- building and construction technical standards
- safety and environmental regulations
The responsibility for ensuring compliance lies with the project designers, technical coordinators, and construction professionals involved in the project.
PRIOR COMMUNICATION (Comunicação Prévia)
In contrast, prior communication works differently.
Instead of waiting for formal approval:
- the applicant submits the technical documentation to the municipality
- the administration verifies compliance with planning rules
- the submission may be rejected, but it is not formally approved
If the notification is not rejected within the applicable timeframe and meets all requirements, the works can proceed.
This procedure is generally used when urban planning conditions are already clearly defined, such as in areas governed by detailed planning instruments.
WHICH WORKS ARE SUBJECT TO PRIOR COMMUNICATION ?
According to the RJUE – Article 4, paragraph 4 of Decree-Law No. 555/99 (16 December), as amended by Decree-Law No. 10/2024 of 8 January, the following works may be subject to prior notification.
Subdivision Operations (Loteamento)
Subdivision operations may fall under prior notification when located in areas covered by:
- Detailed Plan (Plano de Pormenor) published after 7 March 1993 that includes urban design guidelines, lot division, maximum number of dwellings, and implementation of infrastructure works; or
- Execution Unit (Unidade de Execução) that defines building plots, construction area, maximum number of housing units, and infrastructure implementation.
Urbanization Works and Land Reshaping
Urbanization works and land remodeling may also be subject to prior notification when located in areas covered by:
- a Detailed Plan that establishes infrastructure and building development rules
- an approved subdivision operation
- an execution unit defining infrastructure implementation and building parameters
These situations typically involve areas where urban planning rules are already clearly established.
Construction, Alteration, or Extension Works
Construction, alteration, or extension works may use the prior notification procedure when they occur in areas governed by:
- a Detailed Plan
- an approved subdivision development
- an execution unit
These planning instruments must define:
- building plots
- alignment rules
- building footprint areas
- building heights or façade heights
- maximum number of housing units
- construction area and permitted uses
Works in Consolidated Urban Areas
Prior notification may also apply to construction, external alterations, or extensions in consolidated urban areas, provided that the project:
- complies with municipal or intermunicipal planning instruments
- does not exceed the most common façade height along the street frontage
This rule helps maintain urban coherence and architectural continuity within existing streets.
Construction of Swimming Pools
The construction of swimming pools associated with a main building may also be subject to prior notification.
This is common in residential properties such as single-family houses.
Change of Building Use
Prior notification may also apply to changes of use of buildings or building units, or to updates to information contained in an existing use permit, provided that the change is not preceded by urban operations requiring prior control.
Examples include:
- converting a residential unit into an office
- changing a retail space into a service area
- updating the legal use classification of a property
EXTERNAL AUTHORITY CONSULTATIONS IN PRIOR COMMUNICATION
Certain construction works require consultation with external entities outside the municipality due to the nature of the intervention or the location of the project.
Examples may include entities responsible for:
- environmental protection
- cultural heritage
- infrastructure networks
- road authorities
- water management
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DEADLINES
One of the main advantages of the Prior Communication procedure for building works (Comunicação Prévia) is the shorter response time from the municipality when compared to the traditional licensing process.
However, many applicants are unsure about how long they have to wait before starting construction, what deadlines apply to the municipality’s response, and what steps must be taken before work can legally begin.
Under the RJUE – Legal Framework for Urbanization and Building (Regime Jurídico da Urbanização e Edificação), the procedure establishes specific timeframes for municipal review, possible rejection, and the start of construction works.
In this article, we explain the legal deadlines associated with prior notification and what applicants must do before starting construction.
How Long Does the Municipality Have to Respond?
One of the key features of the prior notification procedure is the relatively short legal timeframe for municipal review.
The municipality has 20 working days from the date the application is submitted to review the request and issue a decision if the project does not comply with the applicable legal framework.
If the municipality identifies problems with the submission—such as violations of planning regulations, construction standards, or municipal planning instruments—it may issue a rejection decision within this timeframe.
If the prior notification is not rejected within the legal deadline, and the documentation is correctly submitted, the applicant may proceed with the intended urban planning operation.
Can the Response Period Be Extended?
Yes. The review period may be extended in certain situations.
If the project requires consultations with external authorities, the municipality may extend the response period to up to 60 days.
These consultations may involve entities responsible for areas such as:
-
environmental protection
-
infrastructure networks
-
heritage protection
-
road authorities
-
territorial planning constraints
This extension allows the municipality to obtain the necessary opinions before deciding whether the notification should be rejected.
Can Construction Begin After 10 Days?
In some situations, it is possible to obtain confirmation earlier.
The municipality may issue a Certificate of Non-Rejection of the Prior Communication within 10 days after the initial application is submitted, provided the applicant requests it.
This certificate confirms that the municipality has not rejected the notification during that initial assessment period.
However, this situation typically applies when the project raises no technical or legal doubts, which is more likely when there has been a previously approved Preliminary Information Request (PIP)
CONDITIONS REQUIRED BEFORE STARTING CONSTRUCTION
Even when the prior communication is not rejected, the applicant must still complete several steps before construction can begin.
1. Payment of Urban Planning Fees
The applicant must pay the applicable municipal urban planning fees through self-assessment before starting construction.
These fees relate to the administrative processing and the execution of the urban planning operation.
2. Communication of the Start of Works
The applicant must submit a communication of the start of construction works to the municipality.
This communication must be submitted at least 5 days before construction begins.
Its purpose is to formally inform the municipality that the construction phase is about to start.
3. Identification of the Person Responsible for the Works
The applicant must also communicate the identity of the person responsible for executing the construction works, typically the contractor or construction manager.
This step ensures that the municipality has a clear record of the professionals responsible for the project execution.
Is Requesting the 10-Day Certificate Risk-Free?
Although requesting the Certificate of Non-Rejection within 10 days can accelerate the process, it may involve some risk.
The standard legal review period for prior notification is 20 working days, and requesting an earlier certificate may effectively shorten the time available for municipal analysis.
If the project raises any technical or legal concerns, the municipality may still identify issues during its review.
For this reason, this accelerated approach is usually safer when:
-
the project follows a previously approved Preliminary Information Request (PIP)
-
the planning framework is clear
-
the technical documentation is complete and compliant
FAQS ABOUT PRIOR COMMUNICATION PROCEDURE
What must I do after submitting a prior communication ?
You must post a public notice at the construction site within 10 days after submitting the request to the municipality.
Who is eligible to submit a prior communication?
The person submitting a prior communication for any urban development operation must demonstrate a legitimate interest in the property — that is, they must prove they are entitled to carry out the proposed works.
The applicant must be one of the following:
The owner of the property;
A duly authorized representative of the owner (this may be an individual, company, organization, or condominium association);
A tenant who has obtained the owner’s written consent to perform the proposed works;
A prospective buyer who has received the owner’s written consent to carry out the works in question.
Only individuals or entities falling into one of these categories may lawfully submit the prior communication.
Can the municipality reject my prior communication ?
Yes. If the project does not comply with legal requirements or is incorrectly submitted, the municipality may issue a preliminary rejection.
Can I correct my submission?
Yes. If the municipality identifies missing or incorrect elements, you are usually given 15 days to submit corrections or additional documents, as part of the reply to "Saneamento Liminar".
Do I need to submit all technical projects?
Yes. In the prior notification procedure, architecture and engineering specialties must normally be submitted together, alongside with builder information.
What is the 10-day certificate of non-rejection?
It is a document that may be issued by the municipality confirming that the prior notification has not been rejected within the first 10 days after submission, allowing the process to move forward more quickly.
When should I choose the licensing process instead?
If the technical projects are not yet completed or if the project may fall outside the scope of prior notification, submitting under the licensing regime may be more appropriate.
How long does the municipality have to respond to a prior communication ?
The municipality has 20 working days to reject the prior notification if the project does not comply with legal or planning regulations.
Can the deadline be extended?
Yes. When the project requires consultations with external authorities, the response period may be extended to up to 60 days.
Can construction start immediately after submitting the prior communication?
No. Construction can begin only after the legal review period has passed without rejection and after the applicant has paid the required fees and notified the municipality of the start of works.
Do I need to notify the municipality before starting construction?
Yes. The applicant must submit a communication of the start of works at least 5 days before construction begins.
ARCHITECTURAL PROJECT DOCUMENTATION
The architectural project is one of the core elements of a prior notification submission.
The architectural documentation typically includes:
-
Architectural design project
-
Accessibility plan, ensuring compliance with accessibility regulations
-
Descriptive and technical report explaining the project and justifying the proposed solutions
-
INE statistical form required for national construction statistics
-
Photographic documentation of the property and its surrounding area (when relevant)
-
Estimated total construction cost
-
Construction timeline or execution schedule
When applicable, the application should also include:
-
a copy of the municipal notification approving a Preliminary Information Request (PIP), if such approval exists and is still valid
TECHNICAL RESPONSABILITY AND PROFESSIONAL DOCUMENTATION
A prior notification submission must include documentation confirming the professional responsibility of the technical team involved in the project.
These documents include:
-
Statements of responsibility signed by the project designers and the project coordinator
-
Certificates issued by the relevant professional associations, confirming the professional qualifications of the designers
-
Engineering specialty projects, each accompanied by responsibility statements and professional liability insurance documentation
Engineering specialties may include areas such as structural design, energy performance, water and drainage systems, electrical installations, HVAC systems, and fire safety.
CONSTRUCTION EXECUTION DOCUMENTATION
In addition to the design projects, the prior notification procedure requires documentation related to the construction phase of the project.
This typically includes:
-
Insurance policy covering liability for work-related accidents, in accordance with Portuguese labor law
-
Statements of responsibility signed by the construction supervision director and the construction director
-
Declaration confirming that the contractor holds a valid construction license, issued by the competent authority, with qualifications appropriate to the type and value of the works
-
Construction logbook (Livro de Obra) with the opening statement
-
Construction safety and health plan
These documents ensure that the construction process will comply with safety regulations and professional oversight requirements.
WHY PROPER DOCUMENTATION IS ESSENTIAL TO PRIOR COMMUNICATION PROCEDURE
The prior notification procedure requires that the entire technical and administrative file be complete at the time of submission.
Incomplete or incorrectly prepared documentation may result in:
-
requests for corrections from the municipality
-
delays in the administrative process
-
or even rejection of the prior notification
For this reason, preparing the submission with the support of experienced architects, engineers, and technical consultants is essential to ensure compliance with the applicable legal framework.
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