Pathways for translating the EU Nature Restoration Regulation into effective wetland restoration

With the introduction of the European Nature Restoration Regulation (NRR), EU Member States are requested to increase their efforts of restoring degraded ecosystems. Wetlands form a crucial component of these efforts, as they not only serve as habitats for a wide range of species but also provide essential ecosystem services such as carbon storage, water purification, and flood regulation. IUCN NL has developed a Policy-Oriented Theory of Change to assist government bodies and implementing authorities in heading towards healthy wetlands amid the NRR. 

Header photo: Moeras in Dwingelerveld © robas from Getty Images Signature

The Nature Restoration Regulation: A chance for wetlands 

The NRR sets ambitious, binding targets for restoring Europe’s degraded ecosystems. Over 80% of EU natural habitats are in poor condition, biodiversity is declining, and climate impacts are worsening. The NRR aims to reverse this by requiring Member States to implement concrete restoration actions, making it a historic step in EU environmental policy. 

Wetlands and peatlands are central to these efforts. They are critical for carbon storage, water purification, flood mitigation, and serve as important habitats for biodiversity. Restoring them offers wide-ranging environmental and societal benefits, from climate resilience to improved agriculture and public health. To achieve this, the regulation mandates restoring at least 30% of drained peatlands under agricultural use by 2030 – progressing to 50% by 2050 – with an increasing proportion of these areas required to be rewetted.  

Responding to the NRR, Member States must submit National Restoration Plans (NRPs) by September 2026. These plans outline country-specific strategies and targets, including those for wetlands. Effective translation of the NRR into action depends on guidance tailored to national and local contexts. 

The need for guidance among government bodies and implementing authorities: A wetland restoration Theory of Change 

Effective restoration strategies can only be developed with clear policy guidance, where research is connected to practice. IUCN NL developed a comprehensive and innovative Theory of Change (ToC) titled “From EU Nature Restoration Regulation to Effective Implementation”. The ToC was co-created, building on previous analytical work and input from all stakeholders of the REWET consortium, bringing together policy, implementation, and research perspectives and grounded experiences from seven European countries. 

The ToC offers a roadmap for policymakers and practitioners. It outlines the steps, outputs, and outcomes necessary for long-term wetland and peatland restoration, highlighting pathways for rewetting and identifying obstacles that may hinder success. 

Not a Blueprint 

What was already known – and became even more obvious through the input from REWET stakeholders – is that wetlands across Europe are highly diverse, as are the economic, cultural, ecological, and socio-political contexts they exist within. Because of this variation, restoration cannot rely on universal blueprints. Instead, flexible, context-specific strategies are better suited to address local realities and challenges. 

In that sense, the ToC is not a one-size-fits-all solution. Wetland restoration planning and implementation varies widely across the EU, influenced by differing national and subnational policy structures and contexts. The ToC reflects this diversity by offering an adaptable framework that recognizes complexity while providing practical guidance. It aims to support practitioners and policymakers design and implement restoration interventions that are both effective and sensitive to the unique circumstances of each wetland. 

Challenges ahead 

Restoring Europe’s wetlands is a complex but urgent task. There are several obstacles that make this difficult, such as industry lobbying, land ownership issues, cultural differences, and harmful subsidies.  Addressing these challenges is essential for successful restoration, and the ToC offers concrete ways to tackle them. Another challenge is that wetlands hydrological boundaries often cross administrative borders, so restoration work usually requires cooperation between different regions and authorities. The ToC encourages this kind of collaboration to make sure restoration becomes a concerted effort. Amid these challenges, the ToC developed by IUCN NL provides a practical roadmap that leverages political momentum from the NRR and the development of NRPs to advance effective and lasting wetland restoration across Europe. 

REWET: a laboratory on European scale 

REWET is a laboratory for the restoration of wetlands at European scale. In the REWET project, funded by the European Union, NGOs, universities, companies and institutions joined forces to study the full potential of wetland areas. With information from seven open laboratories, we are developing a comprehensive understanding of how European wetlands can best contribute to climate mitigation and adaptation.