Evidence-based solutions for implementing the EU Nature Restoration Regulation

The EU Nature Restoration Regulation, which entered into force in 2024, mandates Member States to take measures to improve the state of nature. While the time-bound targets set out in the Regulation are equally binding on all Member States, the States retain the discretion to determine the means and scope of implementation, taking national circumstances into account. The drafting of Finland’s national restoration plan is nearing completion; however, the plan has not yet been released for consultation, although this was originally intended to take place already in May. The plan must be submitted to the European Commission no later than 1 September 2026. 

“We have provided policymakers and those preparing the national restoration plan with research-based definitions for the key concepts of the Regulation. Our publication summarises practical recommendations through which the restoration obligations can be implemented as effectively as possible,” says Professor of Ecology Janne Kotiaho from the University of Jyväskylä. 

Finland’s current legislation offers a common indicator for restoration efforts to the EU—there is no need to develop new indicators

In Finland, the “nature value hectare” concept developed by researchers provides a ready, science-based method for quantitatively assessing the state of nature and the impacts of restoration. This metric integrates the area and ecological condition of a habitat type into a single comparable value, making it useful both for setting targets and for monitoring outcomes. The approach is particularly well suited to the implementation of the EU Nature Restoration Regulation, as it enables comparison between different conservation measures and facilitates consistent monitoring of progress across Member States. 

The concept also aligns with Prime Minister Petteri Orpo’s Government Programme, which aims to make nature positivity a competitive strength for Finland and to develop solutions that render the value of nature visible while also creating export potential. 

The research group’s central message is that implementing the NRR in Finland does not require new parallel legislation or the development of new definitions for assessing habitat type conditions and restoration needs. 

“The necessary indicators and tools are already included in the Finnish Nature Conservation Act. Their use enables the Regulation to be implemented rapidly and consistently, without imposing unnecessary additional administrative burdens,” notes Professor of Conservation Biology Heini Kujala from the University of Helsinki. 

According to the researchers, the Finnish habitat type condition indicators developed for voluntary biodiversity offsetting apply to nearly all EU Directive habitat types in Finland. These indicators are designed to serve as a user-friendly field tool for assessing the condition of habitat type occurrences and to support the efficient planning and monitoring of restoration measures. 

The researchers propose research-based and harmonised definitions for the key concepts of the NRR: 

• Good condition of a habitat type
• Significant deterioration
• Non-deterioration obligation 

Mandatory ecological compensation in implementing the non-deterioration obligation 

The researchers emphasise that the non-deterioration obligation of the NRR establishes a clear baseline: the condition of habitat types must not be allowed to decline, and any permitted degradations must be fully compensated. In this context, current Finnish legislation already provides a robust and effective framework. Research-based regulation concerning voluntary biodiversity offsetting defines the equivalence, targeting, and additionality of compensatory measures, while also ensuring that the overall condition of habitat types is maintained in accordance with the Regulation. 

“Through extensive expert collaboration, we have developed scientifically grounded estimates of how much and how quickly different restoration measures improve the condition of habitat type occurrences. However, the scope and costs of the measures required under the Nature Restoration Regulation cannot be determined until the final measures have been defined,” says Kujala. 

The Finnish model addresses the key practical issues required for implementing the Regulation: how significant deterioration is defined, how overall non-deterioration is ensured, and under what conditions compensatory measures are ecologically acceptable. Making use of existing legislation avoids overlapping regulation and reduces administrative costs. 

“It is essential to target compensatory measures to areas and habitat types where restoration will generate the greatest benefits for biodiversity. Applying the provisions of the Finnish Nature Conservation Act directs offsetting to areas close to where deterioration has occurred and ensures that the overall condition of habitat types is maintained. At the same time, it is important that the private sector also contributes to the costs of restoration activities. This requires the introduction of a offset obligation, in line with the ‘polluter pays’ principle, for operators whose activities cause harm to nature,” explains Kotiaho. 

Additional information:

• Wisdom Letters publication and its recommendations: ”Luontotyyppien tilan parantamisen pelisäännöt osana EU:n ennallistamisasetusta” [Rules for improving the condition of biotopes as part of the EU Nature Restoration Regulation] are available at https://doi.org/10.17011/wl/12
• The publication is part of the resource wisdom community JYU.Wisdom’s Wisdom Letters series, where cross-disciplinary research knowledge is refined into peer-reviewed policy recommendations to support decision-making. This series of the University of Jyväskylä combines scientific analysis and practical guidance aiming to support the sustainability transition and societally impactful policymaking.
• The recommendations were prepared by the Boost for biodiversity offsets research consortium, funded by the Strategic Research Council.

Contact persons:

• Professor of Ecology Janne Kotiaho, janne.kotiaho@jyu.fi, +358 50 594 6881
• Professor of Conservation Biology Heini Kujala, heini.kujala@helsinki.fi, +358 50 405 8710