Do you have a source for this? Nandrolone has a lower affinity for the progesterone receptor than progesterone, which reduces its relative activity. But I've so far found nothing saying that the effect after binding is weaker. The relatively large doses of nandrolone seem sufficient to promote normal and above progestogenic activity.
Quantifying the net effect is tricky and you’d need to look at animal studies for that. Exemple here, table 3:
It’s consistent with this text that says that nandrolone is 10x more progestogenic than testosterone but T is 100x weaker than progesterone.
Nandrolone - an overview | ScienceDirect Topics
www.sciencedirect.com
And also consistent with anecdotal use of E2 with Deca: guys need to be veryyyyy cautious with how much E2 they inject. Otherwise it’s gyno territory.19-Nortestosterone (19-NT or nandrolone) is a long-acting ester with potent androgenic effects and a high progestational activity (10 times that of T)