Introduction
Finland, often referred to as the ”Land of a Thousand Lakes,” has actually over 187,000 lakes and abundant groundwater reserves. In the minds of Finns, water is a central element of Finnish life and culture such as enjoying a Finnish sauna by the lake. However, despite this abundance, Finland faces growing challenges in managing its water resources sustainably. The main objective of Finland’s water resources management is to ensure the sustainable use and protection of water bodies. This involves maintaining the ecological and chemical status of surface and groundwater, ensuring sufficient water supply for all sectors, and safeguarding aquatic ecosystems and human health.
Status and use of water resources
We have a good starting point. Finland has one of the highest per capita renewable freshwater resources in the EU. Water resources are approximately 110 billion m³/year, which means per capita availability approximately 20 000 m³/person/year – in other words multiple times more to most other EU countries like Poland (1600 m3/person/year) and Belgium (2100 m3/person/year). Industry accounts for about 80% of total freshwater use in Finland. This is primarily for cooling in energy production and manufacturing, meaning most of this water is returned to the source with low contamination. Municipal use (households and services) uses around 15% which includes domestic water supply, sanitation and public services. While the share of agriculture in terms of direct water withdrawal is small (around 5%), agriculture is a major contributor to nutrient loading in surface waters.
In this context, it is important to highlight that direct water use (e.g., household consumption) accounts for less than 5% of the average Finnish consumer’s water footprint. Virtual water (embedded in imported goods and services) makes up the majority. It is estimated that even over half of Finland’s total blue water footprint comes from imported products, including from countries with water scarcity problems.
The water status is moderately good, except for coastal waters. Almost 90% of the total lake surface area is classified as being in good or high ecological status and over 60% of river length is in good or high ecological condition. The majority of Finland’s approximately 3,900 classified groundwater areas are in good condition, with only about 10% considered at risk. Coastal waters face the biggest challenges, as only 11% of their area is classified in good ecological status. Health risks from drinking water are low and all Finns have access to safe drinking water. However, local vulnerabilities, especially in small or private water systems, can lead to occasional outbreaks of waterborne diseases.
Water governance in Finland
Finland has already for decades promoted integrated approach for water governance, and the first basin-wide, multisectoral plans for ‘comprehensive water resources management’ were established already in early 1970s. Today, Finland’s multi-level governance structure means that integrated water resources management combines centralized and decentralized approaches, with centralized approach providing strategic oversight and decentralized approach enhancing legitimacy and local responsiveness.
Finland’s national water governance is based on EU policies. The key EU policies include the EU Water Framework Directive, aiming for all water bodies to achieve “good ecological status”, EU Floods Directive that seeks to reduce flood risks, and EU Drinking Water Directive that aims to ensure safe and clean water for all citizens with focus on public health and environmental protection. These EU policies are complemented by national legislation such as Water Act, Act on Water Services, Land Use and Building Act and Dam Safety Act. There are also other, more voluntary governance processes such as catchment-based planning and water vision processes that bring different actors together to form a joint vision for future of a given waterbody. Such processes can at best help to enhance collaborative water governance that helps to strike a balance between conflicting interests around water.
Water governance implementation is a collaborative effort that involves multiple ministries and public sector agencies and is done in close collaboration with actors from other societal sectors. The Ministry of the Environment is responsible for water protection and environmental policies, while the Ministry of Agriculture and Forestry is responsible for use of water resources and water economy in general. The Ministry of Social Affairs and Health is responsible for water related health issues and health risks of chemicals, the ministry of Economic Affairs and Employment for industrial and energy policy and regional development, and the Ministry for Foreign Affairs for international water policy and cooperation.
Regional and local authorities have the main responsibility for the practical implementation of water governance. The regional ELY-Centres (Centres for Economic Development, Transport and the Environment) prepare and implement River Basin Management Plans, monitor water quality, and oversee flood risk management, while Regional State Administrative Agencies (AVI) admit water permits and enforce environmental regulations. Municipalities and Regional Councils manage local water services, land use planning, and environmental protection initiatives. While the regional administration reform that will come into effect at the beginning of 2026 will change these structures and roles, the main responsibility for practical implementation stays at regional and local levels.
Finland actively promotes water security and good water governance also internationally. International Water Strategy of Finland, prepared jointly by five water-related ministries, acknowledges water as a critical element for sustainable development and an essential resource for all human activities. It also recognizes water as critical for both sustainable development and security and its essential role in the implementation of development policy and trade policy. Finland is also active in transboundary water cooperation and water diplomacy, having initiated both UN framework conventions on transboundary waters and actively supporting the UNECE Water Convention i.e. Helsinki Convention. We also host the Baltic Marine Environment Protection Commission HELCOM.
Future challenges
Despite its robust governance and abundant water resources, Finland faces several challenges in integrated water resources management. Tackling climate change, biodiversity loss and pollution together with aging water infrastructure, industrial green transition, bioeconomy developments and urbanization necessitate an integrated and adaptive approach to water governance. There is a also growing need for real-time monitoring, data integration, and digital tools to support planning and decision-making. Rising temperatures and changing precipitation patterns demand adaptive infrastructure and policies to manage floods, droughts, and water quality problems. Expanding urban areas and infrastructure development can disrupt natural water cycles and increase flood risks. Much of Finland’s water and wastewater infrastructure is decades old. Upgrading these systems requires significant investment and innovation. In addition, new EU legislation on Urban Waste Water Treatment brings new requirements such as the Extended Producer Responsibility (EPR) to purify micropollutants which is a demanding task in terms of implementing legislation and practical operations
Industrial and mining activities that promote green transition pose risks of chemical pollution, and their impacts are not yet fully understood. Finland’s critically important bioeconomy sector –including agriculture and forestry– impacts both quantity and quality of waters, while at the same time having great potential for re-considering water-land-climate linkages. All these challenges require active cross-sectoral coordination and stakeholder cooperation to prevent tensions and ensure sustainable use of water and related resources. At the moment, Finland stands as a global example of effective water governance, yet it cannot afford complacency. The country’s commitment to sustainability, innovation, and international cooperation positions it well to tackle emerging water challenges. By continuing to foster cross-sectoral collaboration, invest in infrastructure, and embrace novel digital solutions and governance innovations, Finland can ensure that its water resources remain clean, abundant, and resilient for generations to come – as emphasized also in the new European Water Resilience Strategy.
Antton Keto
Director
Water and Marine Protection Unit
Ministry of the Environment
Finland
