COMMISSION STAFF WORKING DOCUMENT 2024 Rule of Law Report Country Chapter on the rule of law situation in Estonia Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2024 Rule of Law Report The rule of law situation in the European Union
Date: 2024-07-24
Institutions: European Commission, Secretariat-General
Subjects: Estonia, administrative transparency, corruption, democracy, freedom of the press, independence of the judiciary, infringement of EU law, pluralism in the media, rule of law, whistleblowing

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 24.7.2024  SWD(2024) 806 final  COMMISSION STAFF WORKING DOCUMENT 2024 Rule of Law Report           Country Chapter on the rule of law situation in Estonia Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2024 Rule of Law Report                        The rule of law situation in the European Union {COM(2024) 800 final} - {SWD(2024) 801 final} - {SWD(2024) 802 final} - {SWD(2024) 803 final} - {SWD(2024) 804 final} - {SWD(2024) 805 final} - {SWD(2024) 807 final} - {SWD(2024) 808 final} - {SWD(2024) 809 final} - {SWD(2024) 810 final} - {SWD(2024) 811 final} - {SWD(2024) 812 final} - {SWD(2024) 813 final} - {SWD(2024) 814 final} - {SWD(2024) 815 final} - {SWD(2024) 816 final} - {SWD(2024) 817 final} - {SWD(2024) 818 final} - {SWD(2024) 819 final} - {SWD(2024) 820 final} - {SWD(2024) 821 final} - {SWD(2024) 822 final} - {SWD(2024) 823 final} - {SWD(2024) 824 final} - {SWD(2024) 825 final} - {SWD(2024) 826 final} - {SWD(2024) 827 final} - {SWD(2024) 828 final} - {SWD(2024) 829 final} - {SWD(2024) 830 final} - {SWD(2024) 831 final}  
 
 
ABSTRACT 

The  level  of  digitalisation  of  justice  in  Estonia  remains  among  the  highest  in  the  EU. 
Following  the  amendments  of  the  Courts  Act  from  2023,  all  district  courts  have  created  at 
least  two specialised departments,  civil  and criminal.  There have been no cases  of de facto 
transfers of judges. The judiciary initiated a reform of the Council for the Administration of 
Courts  that  would  transfer  more  powers  from  the  executive  to  the  judiciary.  A  new  law 
lowered the indexation of salaries for nearly all civil servants, including judges. The measure 
seems to be of a general nature and is limited in time, while a constitutional review is about 
to  be  requested.  The  high  workload  and  the  diminishing  attractiveness  of  the  judicial 
profession were identified as challenges by stakeholders. At the same time courts continue to 
deal efficiently with incoming cases. 

The implementation of the 2021-2025 Anti-Corruption Action Plan continues in a timely and 
efficient manner. Legislative efforts are ongoing to improve the investigation and prosecution 
of  financial  crimes,  including  corruption.  Investigation  and  prosecution  of  corruption  cases 
are carried out efficiently and investigations regarding high-level corruption are still ongoing. 
The  guidelines  on  conflicts  of  interest  are  being  implemented  successfully,  but  there  are 
currently  no  plans  to  introduce  a  related  enforcement  mechanism.  Digital  tools  are  being 
developed  and  deployed  to  ensure  better  implementation  of  the  existing  rules  on  integrity. 
The guidelines on lobbying continue being implemented with success, while discussions on 
introducing lobbying rules in Parliament have been initiated. Political party financing remains 
a high-risk area for corruption, and the adoption of the draft law aiming at strengthening the 
powers  of  the  Political  Parties’  Financing  Surveillance  Committee  is  a  priority  for  the 
government. Rules on revolving doors are being implemented and additional guidance in this 
regard  is  expected.  New  legislation  on  whistleblower  protection  was  adopted.  Healthcare, 
local  government,  political  party  financing,  public  procurement,  as  well  as  residence  and 
work permits are considered to be at high risk of corruption. 

The  national  media  regulator  in  Estonia  has  remained  independent.  The  Government  is 
assessing the need to introduce amendments to the existing media legislation concerning, for 
example, licensing of radio channels. A legislative reform aimed to guarantee better financial 
stability  and  political  independence  of  the  public  service  media  is  being  prepared.  The 
Ministry  of  Justice  is  working  on  an  analysis  regarding  the  strengthening  of  the  right  of 
access  to  documents  guaranteed  in  the  Public  Information  Act  and  in  the  meantime,  the 
Information  System  Authority  has  made  public  information  with  unrestricted  access 
proactively  available  online.  The  protection  of  journalists  remains  stable,  although  possible 
legal actions by politicians and business owners have been referred to as a growing risk. 

Frequent  use  of  procedures  allowing  for  substantial  delays  to  the  legislative  process  in 
Parliament  have  triggered  a  reaction,  resulting  in  the  Government  using  the  accelerated 
legislative workflows more often. A draft reform envisages more financial autonomy for the 
Chancellor  of  Justice.  The  practice  of  allocation  of  funding  to  Civil  Society  Organisations 
through Parliament without concrete criteria has been discontinued. 

1 

 
 
 
RECOMMENDATIONS 

Overall, concerning the recommendations in the 2023 Rule of Law Report, Estonia has made: 

•  Some  further  progress  on  ensuring  that  the  guidelines  on  the  conflict  of  interests  are 

subject to an enforcement mechanism. 

•  Some further progress on efforts to ensure consistent and effective implementation of the 
right  of  access  to  information,  taking  into  account  European  standards  on  access  to 
official documents. 

On this basis, and considering other developments that took place in the period of reference, 
it is recommended to Estonia to: 

•  Continue the efforts to  reform  the Council for the Administration of Courts, taking into 

account European Standards on councils for the judiciary.  

•  Advance with the efforts to ensure consistent and effective implementation of the right of 
access  to  information  taking  into  account  European  standards  on  access  to  official 
documents. 

•  Ensure effective public consultation in the context of the legislative process. 

2 

 
 
 
 
 
I. 

JUSTICE SYSTEM  

The  Estonian  court  system  consists  of  three  levels:  four  County  Courts  (hearing  all  civil, 
criminal  and  misdemeanour  matters)  and  two  Administrative  Courts  at  first  instance,  two 
Circuit Courts at second instance (reviewing decisions of County and Administrative Courts), 
and  the  Supreme  Court  at  the  highest  instance,  which  reviews  court  judgments  by  way  of 
cassation proceedings. The Supreme Court administers its own budget and operations, while 
the courts of first and second instance are administered in cooperation between the Council 
for  Administration  of  Courts  and  the  Ministry  of  Justice.  Estonia  does  not  have  a 
Constitutional court but the Supreme Court’s Constitutional Review Chamber can carry out 
ex  post  constitutional  review,  including,  under  certain  conditions,  based  on  a  constitutional 
complaint1. The Council for Administration of Courts is a non-permanent body2, which has 
powers,  among  others,  related  to  the  judicial  map,  the  resources  of  the  judiciary  and 
participates  in  the  discussion  on  administration  of  the  courts.  Judges  of  first  and  second 
instance courts are appointed by the President of the Republic on the proposal of the Supreme 
Court  (en  banc)3.  The  Prosecutor’s  Office  is  a  government  agency  under  the  Ministry  of 
Justice, which is independent in the performance of its duties. It is managed by the Prosecutor 
General, particularly as regards the appointment and career of prosecutors4. The Estonian Bar 
Association  is  an independent,  self-governing professional  association5. Estonia participates 
in the European Public Prosecutor’s Office (EPPO). 

Independence  

The level of perceived judicial independence in Estonia continues to be high among the 
general public and average among companies. Overall, 67% of the general population and 
58%  of  companies  perceive  the  level  of  independence  of  courts  and  judges  to  be  ‘fairly  or 
very  good’  in  20246.  The  perceived  judicial  independence  among  the  general  public  has 
increased in comparison with 2023 (65%), as well as with 2020 (57%). The perceived judicial 
independence  among  companies  has  slightly  decreased  in  comparison  with  2023  (59%), 
although it remains higher than 2020 (39%)7. 

1   § 4 of the Constitutional Review Court Procedure Act - A complaint can be referred to the Supreme Court’s 
Constitutional  Review  Chamber  by  the  President  of  the  Republic,  the  Chancellor  of  Justice,  a  local 
government  council  and  the  Parliament.  §  9  of  the  Constitutional  Review  Court  Procedure  Act  - 
Constitutional review on the basis of court judgment or court ruling is also possible. 

2   The  Council  does  not  function  on  a  permanent  basis  and  has  four  regular  sessions  per  year,  as  well  as 
extraordinary sessions whenever needed. See 2020 Rule of Law Report, Country Chapter on the rule of law 
situation in Estonia, p. 3. 

3   The Supreme Court en banc is the highest body of the Supreme Court. It is comprised of all 19 justices of 
the  Supreme  Court.  The  Supreme  Court  en  banc  is  convened  and  chaired  by  the  Chief  Justice  of  the 
Supreme Court. 

4   The  Prosecutor  General  exercises  supervisory  control  in  the  prosecutor's  office,  and  chief  prosecutors 

exercise supervisory control in district prosecutor's offices. 

5   § 2(1) of the Bar Association Act. 
6   Figures 51 and 53, 2024 EU Justice Scoreboard, and Figures 50 and 52, 2022 EU Justice Scoreboard. The 
level  of  perceived  judicial  independence  is  categorised  as  follows:  very  low  (below  30%  of  respondents 
perceive judicial independence as fairly good and very good); low (between 30-39%), average (between 40-
59%), high (between 60-75%), very high (above 75%). 

7   In Estonia, 46% of the companies are either fairly or very confident that their investments are protected by 
the  law  and  courts  in  the  Member  State.  22%  of  the  companies  in  Estonia  see  the  quality,  efficiency  or 

3 

 
 
 
All  courts  have  created  at  least  two  specialised  departments,  civil  and  criminal,  and 
concerns about possible de facto transfers of judges have not materialised. As mentioned 
in  the  2023  Rule  of  Law  Report,  amendments  to  the  Courts  Act  entered  into  force  as  of  1 
March 20238. With these amendments, the territorial divisions of courts at national level were 
abolished  and  converted  into  specialised  civil  and  criminal  departments.  These  specialised 
departments  are  headed  by  a  judge,  who  is  appointed  by  the  president  of  the  court  after 
having heard the opinion of the judges of the given department9. The objectives of the reform 
were  to  balance  the  workload  among  judges  from  different  courts  and  court  houses,  and  to 
harmonise  the  case-law10.  In  implementing  the  reform,  all  courts  created  at  least  two 
specialised departments, civil and criminal11. The creation of additional departments can take 
place only after the approval of the common assembly of a court12. As regards the fulfilment 
of  the  objectives  of  the  reform,  the  Government  informed  that  the  workload  is  being 
redistributed to better balance it among courts. As to the harmonisation of case law, it is still 
premature to report on any results at this stage13. Stakeholders reported that there is already 
an  increased  sharing  of  information  among  district  courts  which  would  lead  to  the  desired 
results14.  However,  there  has  been  no  easing  of  the  workload  of  individual  judges  which 
could be attributed to the effects of the reform15. A concern flagged in the 2023 Report16 was 
that the new amendments and related specialisation of departments could result in a de facto 
transfer  of  judges  without  their  consent,  but  this  concern  did  not  materialise17.  The  law 
contains  specific  safeguards  for  the  transfer  of  judges,  namely  that  the  transfer  of  a  judge 
from  one  department  to  another  is  done  only  following  an  application  of  a  judge,  which  is 
then  decided  upon  by  the  president  of  the  court  after  having  heard  the  opinion  of  the  full 
court18.  It  is  recalled  that  according  to  European  standards,  specialisation  of  courts  could 
present certain advantages19 but also certain disadvantages20, and both have to be duly taken 
into account, having in mind the specificities of each individual Member State. 

independence of justice as one of the main reasons for concern about investment protection in the country. 
Figures 55 and 56, 2024 EU Justice Scoreboard. 

8   See 2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, pp. 4-6. 
9   The Heads of Departments support the administration of justice and organise the work of the officials of the 
department. They also perform the duties assigned to them by the president of the court and prescribed in the 
internal rules of the court. 

10   See 2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 4. 
11   Input from Estonia for the preparation of the 2024 Rule of Law Report, p. 1. Information also received from 
Ministry  of  Justice,  Supreme Court  and  Estonian  Judges Association  in  the  context  of  the  country  visit  to 
Estonia.  

12   § 91 (2) of the Courts act. The Government and the Supreme Court have informed that most courts remained 
only  with  the  two  mandatory  departments.  Only  one  court  has  established  a  third  department,  which  is 
dealing with insolvency and commercial registry department.  

13   Information received from the Ministry of Justice in the context of the country visit to Estonia.  
14   Information received from the Supreme Court, the Council for Administration of Courts and the Ministry of 

Justice in the context of the country visit to Estonia. 

15   Information  received  from  the  Supreme  Court,  the  Council  for Administration  of  Courts  and  the  Estonian 

Judges Association in the context of the country visit to Estonia. 

16   See 2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, pp. 5-6. 
17   Information received from the Ministry of Justice, Supreme Court, Council for the Administration of Courts 

and the Estonian Judges Association.  

18   § 91 (4) of the Courts Act. 
19   For example, concentrating case-files in the hands of a select group of specialist judges can be conducive to 
consistency in judicial decisions and consequently can enhance legal certainty. See Opinion (2012) No. 15 of 
the Consultative Council of European Judges on the Specialisation of Judges, paras. 8-13. 

4 

 
 
The  judiciary  initiated  a  reform  of  the  Council  for  the  Administration  of  Courts  that 
would transfer more powers from the executive to the judiciary. On 5 February 2024, the 
Ministry  of  Justice  published  a  legislative  intent21  outlining  the  ideas  for  a  reform  of  the 
judiciary.  The  intent  was  developed  within  a  working  group  set  up  by  the  President  of  the 
Supreme Court and in cooperation with stakeholders22. It envisages a reform of the Council 
for the Administration of Courts and a transfer of powers from the executive to the judiciary. 
The main objectives of the proposed reform are to increase the accountability and decision-
making  power  of  courts  in  the  development  and  administration  of  courts,  to  strengthen  the 
independence of the judiciary from the executive, to reduce the dispersion of responsibilities 
regarding the  administration of courts, and to  ensure a coherent  and uniformly high-quality 
judicial  administration  service  for  all  courts.  There  are  no  concrete  draft  amendments 
proposed yet,  as the legislative intent  will first  be discussed with  the Government  and only 
then  tabled  at  Parliament.  As  regards  councils  of  the  judiciary,  it  is  recalled  there  are 
European  standards  for  such  bodies  concerning  their  composition  and  their  functioning  in 
order to ensure their independence23.  

Quality  

The  level  of  digitalisation  remains  among  the  highest  in  the  EU  with  a  regulation  on 
paper  free  proceedings  being  implemented.  A  regulation  concerning  paper  free  court 
proceedings in civil and administrative cases, which entered into force in April 2023 is being 
successfully implemented24. It provides a clear legal value to the digital court file in order to 
facilitate  the  digitalisation  of  court  proceedings  and  the  transition  to  paperless  court 
proceedings25. The Estonian justice system  is  very advanced in  offering a  variety  of digital 
solutions  to  conduct  and  follow  court  proceedings.  These  include,  among  others,  the 
possibility  for  defendants  to  submit  written  statements  online,  including  legal  aid 
applications, for defendants in detention to use ICT facilities to prepare for hearings, and for 
victims to access their ongoing case electronically and to submit written statements online26.  

20   For  example,  specialisation,  could  lead  to  reproducing  previous  decisions  when  deciding  on  same  issues, 
which can hamper the evolution of case-law in line with society’s needs. Furthermore, smaller courts may 
find it impossible to set up specialist chambers, or an adequate number of such chambers. This forces judges 
to be versatile, and thus to have the ability to address a range of specialist matters. See Opinion (2012) No. 
15 of the Consultative Council of European Judges on the specialisation of judges, paras. 14 to 23. 

21   The legislative intent is the first step in the process of elaboration of draft laws. It precedes the drafting of 
the  concrete  amendments,  and  it  serves  as  a  basis  for  discussion  between  governmental  and  non-
governmental authorities.  

22   Supreme Court, the Council for Administration of Courts and the Estonian Judges Association. 
23   Recommendation CM/Rec(2010)12 of the Committee of Ministers of the Council of Europe, paras. 26-29. 
See also Venice Commission Opinion (CDL-AD(2020)035), para. 44. Most notably, it is recommended that 
“Not less than half the members of such councils should be judges chosen by their peers from all levels of the 
judiciary and with respect for pluralism inside the judiciary”.  

24   Input from Estonia for the preparation of the 2024 Rule of Law Report, p. 4. See also Act on Amendments to 
the  Code  of  Civil  Procedure  and  the  Code  of  Administrative  Procedure  (transition  to  paperless  court 
procedure) 723 SE. 

25   The regulation does not require to print out both electronic documents created by the court itself and those 
sent  to  the  court,  as  well  as  data  already  stored  in  the  information  system,  for  the  paper  file.  This  was  a 
requirement  under  the  previous  procedural  rules,  which  did  not  take  into  account  the  high  level  of 
digitalisation.  

26   Figures 47 and 48, 2024 EU Justice Scoreboard.  

5 

 
 
A  new  law  lowered  the  indexation  of  salaries  for  nearly  all  civil  servants,  including 
judges.  In  December  2023,  the  Parliament  adopted  a  law  that  cut  in  half  the  indexation  of 
salaries for most civil servants and froze the indexation for the next four years27. The cut was 
deemed necessary to cope with the economic difficulties facing the country. After the end of 
the  four-year  period,  a  raise  in  salaries  has  been  promised  to  compensate  for  this  cut28. 
Furthermore,  the  cut  of  indexation  is  affecting  salaries  of  civil  servants  across  the  board, 
including  salaries  of  almost  all  judges29.  Only  salaries  linked  to  the  highest  civil  servant 
salary index, which is determined by the average national salary increase and the increase in 
the  cost  of  living  are  exempted30.  Stakeholders  have  explained  that  in  2019,  judges  had 
agreed  to  forfeit  some  benefits  in  exchange  for  having  a  stable  yearly  indexation  of  their 
salaries31. However, this is now being changed by freezing the indexation of salaries for the 
next  four  years,  and  the  Estonian  Judges  Association  have  approached  the  Chancellor  of 
Justice  to  cooperate  on  a  possible  challenge  of  the  law  before  the  Constitutional  review 
Chamber of the Supreme Court, arguing that the new law affects judicial independence32. It is 
recalled that according to European standards, judges’ remuneration should be commensurate 
with  their  profession  and  responsibilities  and  be  sufficient  to  shield  them  from  inducement 
aimed  at  influencing  their  decisions33.  In  that  respect  it  is  relevant  that  the  new  measure 
seems to be of a general nature, having a broader scope affecting not only judges but nearly 
all civil servants, and it is also limited in time.  

The  high  workload  and  the  diminishing  attractiveness  of  the  judicial  profession  have 
been  identified  as  challenges  by  stakeholders.  On  10  October  2023,  the  President  of  the 
Supreme Court gave an overview of the functioning of the judicial system before Parliament 
and  identified  the  high  workload  and  the  difficulty  in  attracting  young  talent  as  main 
concerns34.  The  Ministry  of  Justice  informed  that  there  is  a  constant  monitoring  of  the 
workload of judges, and the Supreme Court confirmed that there is a continuous increase in 
the workload at first and second instance courts35. There is a common understanding among 
stakeholders that the issue with the high workload is related to the procedural rules36. For this 

27   See Salaries of Higher State Servants Act. 
28   Information  received  from  the  Supreme  Court,  Council  for  the Administration  of  Courts,  Estonian  Judges 
Association and the Chancellor for Justice in the context of the country visit to Estonia. See also an article 
from the public service media from 18 December 2023.  

29   Information  received  from  the  Supreme  Court,  Council  for  the  Administration  of  Courts,  Estonian  Judges 

Association and the Chancellor for Justice in the context of the country visit to Estonia. 

30   These include the Members of Parliament and other senior public officials like the President of the Supreme 

Court and the Chancellor of Justice.  

31   Information  received  from  the  Supreme  Court,  Council  for  the  Administration  of  Courts,  and  Estonian 

Judges Association in the context of the country visit to Estonia. 

32   Information received from the Estonian Judges Association in the context of the country visit to Estonia. 
33   Recommendation CM/Rec(2010)12 of the Committee of Ministers of the Council of Europe, para. 54, and 
Court of Justice of the European Union, judgment of 27 February 2018, C-64/16, Associação Sindical dos 
Juízes Portugueses, para. 45, ‘Like the protection against removal from office of the members of the body 
concerned […], the receipt by those members of a level of remuneration commensurate with the importance 
of the functions they carry out constitutes a guarantee essential to judicial independence’. 

34   Input  from  Estonia  for  the  preparation  of  the  2024  Rule  of  Law  Report,  p.  15.  Information  also  received 
from  the  Ministry  of  Justice,  the  Supreme  Court,  the  Council  for  the  Administration  of  Courts  and  the 
Estonian Judges Association.  

35   Information received from the Ministry of Justice and the Supreme Court in the context of the country visit 

to Estonia. 

36   Information received from the Ministry of Justice, the Supreme Court, the Council for the Administration of 

Courts and the Estonian Judges Association.  

6 

 
 
reason, in December 2023, the President of the Supreme Court established a working group 
to  prepare  draft  amendments  that  would  determine  and  address  the  concerns  related  to  the 
procedural rules that judges have37. It is expected that the first draft amendments would reach 
Parliament in  September 202438. According to  the  Ministry of Justice, the recently adopted 
reform on the specialisation of the courts could balance the workload, while a change in the 
procedural rules would help reduce it39. As regards the challenge of attracting young talent to 
the  judiciary,  there  have  been  some  steps  taken  by  the  executive  to  tackle  this  issue40,  and 
some initiatives have been taken by the Supreme Court in this respect41.  

The impact of the new legal aid rules to increase the participation of legal aid providers 
remains  to  be  observed.  As  mentioned  in  the  2023  Rule  of  Law  Report,  the  Minister  of 
Justice  amended  the  regulation  to  increase  the  legal  aid  fees  for  lawyers42.  Despite  this 
increase, the impact of the new rules remains to be observed. Stakeholders have reported that 
the situation has not changed, with very few lawyers participating in the legal aid scheme43. 
However, the legal fees received by a defence lawyer in a specific criminal case seem to be 
above the EU average44. In relation to lawyers and legal aid providers, it should be noted that 
there was a case before the Supreme Court regarding the methodology of evaluation of exams 
used by the Estonian Bar, which suspended the exams  for entering  the Bar45. The Supreme 
Court  found  that  the  rules  of  procedure  of  the  Estonian  Bar  Association,  including  the 
organisation of the bar exam, do not contradict the Bar Association Act. As a result, the exam 
dates have now been restored, and the next exam dates have been published on the website of 
the Bar Council46.  

Efficiency 

The  courts  continue  to  deal  efficiently  with  incoming  cases  despite  some  increases  in 
length  of  proceedings.  According  to  the  2024  EU  Justice  Scoreboard,  the  length  of 
proceedings in disposition time for 2022 continues to be among the shortest in the EU47. For 

37   Information received from the Supreme Court, the Council for the Administration of Courts and the Estonian 

Judges Association in the context of the country visit to Estonia. 

38   Idem. 
39   Information received from the Ministry of Justice in the context of the country visit to Estonia. 
40   §  1252  of  the  Courts  Act  entered  into  force  in  May  2023.  At  least  once  a  year,  the  prospective  judicial 
candidates training program is organised; and the draft act of the Courts Act has been in progress regarding 
the  requirements  of  evaluation  of  judges’  professional  performance,  partial  work-load  and  restrictions  on 
holding office. The draft act aims to support the professional development of judges and to modernise the 
judiciary. 

41   These include projects to raise awareness among young people about the justice system, paid internships at 
the Supreme Court, open doors days and new branding projects for the judiciary. Information received from 
the  Supreme  Court  and  the  Council  for  the Administration  of  Courts  in  the  context  of  the  country  visit  to 
Estonia. 

42   See 2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 7. 
43   Written contribution from the CCBE on Estonia for the preparation of the 2024 Rule of Law Report, p. 50. 
According to the Bar, out of approx. 800 active members, only around 100 are participating in the legal aid 
scheme.  Information  received  from  the  Estonian  Bar  Association  in  the  context  of  the  country  visit  to 
Estonia.  

44   Figure 26, 2024 EU Justice Scoreboard. 
45   Written contribution from CCBE for the preparation of the 2024 Rule of Law Report, pp. 48-49. 
46   See exam dates announced on the website of the Estonian Bar Association: https://advokatuur.ee/en/kuidas-

saada-advokaadiks/olulised-kuupaevad.  

47   Figures 6-10 and 16-23, 2024 EU Justice Scoreboard. 

7 

 
 
2023,  the  length  of  proceedings  in  days  on  average  for  civil  cases  was  with  a  similar 
efficiency as in previous years in county courts48. In criminal cases the efficiency has slightly 
decreased  in  comparison  to  202249.  In  the  first  instance  courts,  the  length  of  administrative 
cases  continued  to  increase50.  The  length  of  court  proceedings  in  civil,  commercial  and 
administrative cases is among the shortest in the EU (measured in disposition time) and the 
number of pending cases is lower than average in the EU. Compared to 2022, the clearance 
rate  remained  stable  at  100%;  this  means  that  courts  continue  to  be  able  to  cope  with 
incoming cases51.  

II. 

ANTI-CORRUPTION FRAMEWORK  

The Ministry of Justice is in charge of the preparation, oversight and coordination of the anti-
corruption  Action  Plan  2021-2025.  The  Anti-Corruption  Select  Committee  exercises 
parliamentary  scrutiny  over  the  implementation  of  anti-corruption  measures.  The  Political 
Parties’  Financing  Surveillance  Committee  oversees  political  parties’  funding.  The 
Corruption  Crimes’  Office  of  the  National  Criminal  Police  is  a  specialised  unit  responsible 
for  carrying  out  investigations  on  corruption  cases,  and  the  Internal  Security  Service  is 
responsible  for  investigating  corruption  offences  committed  by  higher  state  officials  and 
higher  local  government  officials  in  six  larger  municipalities.  The  Prosecutor’s  Office 
supervises and directs pre-trial criminal investigation proceedings on corruption offences and 
represents the public prosecution in courts. 

The perception among experts and business executives is that the level of corruption in 
the  public  sector  remains  relatively  low.  In  the  2023  Corruption  Perceptions  Index  by 
Transparency International, Estonia scores 76/100 and ranks 8th in the European Union and 
12th globally52. This perception has been relatively stable over the past five years53. The 2024 
Special  Eurobarometer  on  Corruption  shows  that  51%  of  respondents  consider  corruption 
widespread  in  their  country  (EU  average  68%)  and  21%  of  respondents  feel  personally 
affected by corruption in their daily lives (EU average 27%)54. As regards businesses, 36% of 
companies consider that corruption is widespread (EU average 65%) and 10% consider that 

48   For 2022, 102 days on average; for 2023, 108 days on average. See also 2023 Rule of Law Report, Country 

Chapter on the rule of law situation in Estonia, p. 5. 

49   For  2022,  245  days  in  general  criminal  proceedings,  33  days  in  simplified  proceedings,  and  44  days  in 
misdemeanour cases; for 2023 310 days in general criminal proceedings, 34 days in simplified proceedings 
and 44 days in misdemeanour cases. See also 2023 Rule of Law Report, Country Chapter on the rule of law 
situation in Estonia, p. 5. 

50   For  2022,  149  days;  for  2023,  162  days.  Input  from  Estonia  for  the  preparation  of  the  2024  Rule  of  Law 

Report, p. 3.  

51   Figures 11-16, 2024 EU Justice Scoreboard. 
52   Transparency International, Corruption Perceptions Index 2023 (2024). The level of perceived corruption is 
categorized  as  follows:  low  (the  perception  among  experts  and  business  executives  of  public  sector 
corruption scores above 79); relatively low (scores between 79-60), relatively high (scores between 59-50), 
high (scores below 50). 

53   In 2019 the score was 74, while, in 2023, the score is 76. The score significantly increases/decreases when it 
changes  more  than  five  points;  improves/deteriorates  (changes  between  4-5  points);  is  relatively  stable 
(changes from 1-3 points) in the last five years. 

54   Special Eurobarometer 548 on Citizens’ attitudes towards corruption in the EU (2024). The Eurobarometer 
data  on  citizens’  corruption  perception  and  experience  is  updated  every  year.  The  previous  data  set  is  the 
Special Eurobarometer 534 (2023). 

8 

 
 
corruption  is  a  problem  when  doing  business  (EU  average  36%)55.  Furthermore,  36%  of 
respondents find that there are enough successful prosecutions to deter people from  corrupt 
practices  (EU  average  32%)56,  while  52%  of  companies  believe  that  people  and  businesses 
caught for bribing a senior official are appropriately punished (EU average 31%)57.  

The implementation of the 2021-2025 Anti-Corruption Action Plan continues in a timely 
and  efficient  manner.  The  implementation  of  the  Anti-Corruption  Action  Plan  2021  – 
202558  is  being  carried  out  according  to  schedule.  In  2023,  the  main  focus  was  on  issues 
regarding  conflicts  of  interest  and  lobbying59  and  the  anti-corruption  network60,  including 
governmental and civil society representatives, met five times61. The report on the monitoring 
of the implementation of the 2021-2025 Anti-Corruption Action Plan will be published at the 
end of 202462. So far one of the potential issues has been the limited focus of investigations 
on  the  private  sector63  which  is  expected  to  be  addressed  through  an  increase  of  funds  in 
relation to the police capacity to investigate corruption in the private sphere (estimated cost of 
EUR  1,500,000)  and  establishing  procedural  and  analytical  capacity  in  the  Prosecutor’s 
Office (e.g. recruiting auditors, support staff)64. 

Legislative efforts are ongoing to improve the investigation and prosecution of financial 
crimes,  including  corruption.  The  draft  amendments  to  the  Anti-Corruption  Act65  were 
submitted  to  the  Parliament  in  May  202466.  In  2023,  the  Ministry  of  Interior  established  a 
working  group67  to  improve  the  effectiveness  of  investigation  and  prosecution  of  financial 
crimes,  including  corruption.  It  is  tasked  with  preparing  legislative  and  organisational 
reforms (including on staff training and funding). The working group will submit a report to 
the  Government  in  the  course  of  2024  summarising  its  conclusions68.  Furthermore,  a 
legislative intent to amend the Police and Border Guard Act69 for a more efficient approach to 

55   Flash Eurobarometer 543 on Businesses’ attitudes towards corruption in the EU (2024). The Eurobarometer 
data on businesses’ attitudes towards corruption as is updated every year. The previous data set is the Flash 
Eurobarometer 524 (2023). 

56   Special Eurobarometer 548 on Citizens’ attitudes towards corruption in the EU (2024).  
57   Flash Eurobarometer 543 on Businesses’ attitudes towards corruption in the EU (2024).  
58   Anti-Corruption Action Plan 2021 – 2025.  
59   Information received in the context of the country visit to Estonia from the Ministry of Justice.  
60   Corruption  prevention  contacts  in  ministries.  Available  at:  https://www.korruptsioon.ee/et/korruptsiooni-

ennetus/korruptsiooni-ennetuse-kontaktid-ministeeriumides. 

61   Information received in the context of the country visit to Estonia from the Ministry of Justice.  
62   Information received in the context of the country visit to Estonia from the Ministry of Justice.  
63   Daily  Postimees,  ’Concerns  of  the  Central  Criminal  Police:  private  sector  corruption  and  municipalities 

subject to crime complaints in the election campaign’, 12 December 2023.  

64   Anti-Corruption Action Plan 2021 – 2025.  
65   2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, pp. 9-10. 
66   Written input from Estonia for the 2024 Rule of Law Report.  
67   The Working Group is composed of representatives of the relevant governmental institutions and bodies. 
68   Information received in the context of the country visit to Estonia from the Ministry of Justice.  
69   The  proposed  changes  concern,  inter  alia,  aligning  appointments  and  terms  of  service  of  officers  in 
management  positions  (from  the  level  of  head  of  division)  on  the  same  basis  as  the  provisions  for  the 
appointment  of  other  high-ranking  police  officers  (e.g.  prefects  and  deputy  general  directors).  It  is  also 
proposed to make available, if necessary, surveillance information obtained within the framework of other 
criminal  proceedings  (i.e.  evidence  of  discovery)  during  the  recruitment  of  a  person  or,  in  the  case  of  a 
person  being  in  in  service,  to  assess  suitability  for  police  service  and  access  to  surveillance  information. 
Input from Estonia for the 2024 Rule of Law Report, p. 5.  

9 

 
 
the  prevention  of  corruption,  is  expected  to  be  sent  to  the  ministries  for  coordination  in 
202470.  

The investigation and prosecution of corruption cases is carried out efficiently. In 2023, 
there  were  34  corruption  cases  under  pre-court  investigation71,  nine  cases  were  sent  to 
court72, six cases were adjudicated and three were terminated on expediency73. Currently, the 
Prosecutor’s Office74 is investigating three corruption offences all of which concern bribery 
75. There are currently no ongoing cases on foreign bribery. As regards cooperation with the 
EPPO,  no  cases  on  corruption  offences  were  investigated  in  202376.  Estonia  currently  has 
three delegated prosecutors while the expectation is to have at least one more77.  

Investigations  regarding  high-level  corruption  are  still  ongoing.  Some  high-level 
corruption cases are currently ongoing78, including proceedings against a former Minister79. 
In  the  Porto  Franco  No.  1  case,  the  Centre  Party  and  its  former  secretary  general  were 
convicted by the Appellate Court for influence peddling after the Appellate Court overturned 
the acquittal decision by the court of first instance80. In the Porto Franco bribery case No 2, 
another trial is currently ongoing in the court of first instance involving the former advisor of 
the minister of finance81. In the case of the Port of Tallinn, the court of first instance acquitted 
the defendants since it was found to be a private sector bribery case, which as the statute of 
limitation had expired82. 

Some further progress has been made as the guidelines on conflicts of interest are being 
implemented  successfully,  but  there  are  currently  no  plans  to  introduce  a  related 
enforcement  mechanism.  The  2023  Rule  of  Law  Report  recommended  to  Estonia  to 
‘[e]nsure  that  the  guidelines  on  the  conflict  of  interests  are  subject  to  an  enforcement 

70   Those changes were proposed as a follow-up to a suspicion of fraud of senior members of the PBGB  – the 
Central Criminal Police Director General, the director of the Internal Control Bureau and the director of the 
Central  Criminal  Police  Operations  Office,  along  with  the  director  of  the  Customs  Department  of  the 
Estonian  Tax  and  Customs  Board.  ERR,  ‘Estonian  customs  chief,  PPA  director  detained  on  fraud-related 
suspicions’,  21  March  2023,  https://news.err.ee/1608923327/belitsev-central-criminal-police-ppa-officials-
involved-in-fraud-case. 

71   Compared to 42 in 2022. Annex to the input from Estonia for the 2024 Rule of Law Report. See also 2023 

Rule of Law Report Country Chapter on the rule of law situation in Estonia, p. 10. 

72   Compared to 6 in 2022. Annex to the input from Estonia for the 2024 Rule of Law Report. See also 2023 

Rule of Law Report Country Chapter on the rule of law situation in Estonia, p. 10. 

73   Compared to 5 in 2022. Annex to the input from Estonia for the 2024 Rule of Law Report. See also 2023 

Rule of Law Report Country Chapter on the rule of law situation in Estonia, p. 10. 

74   The  Prosecutor’s  Office  is  composed  of  40  prosecutors  responsible  for  prosecuting  white-collar  crimes, 
including corruption, economic crimes and cybercrime. See also 2023 Rule of Law Report Country Chapter 
on the rule of law situation in Estonia, p. 10. 

75   Compared to 22 cases on corruption offences in 2022. Annex to the input from Estonia for the 2024 Rule of 

Law Report. 

76   EPPO 2023 annual report, p. 27. 
77   Information received in the context of the country visit to Estonia from the Police and Border Guard.  
78   Information received in the context of the country visit to Estonia from the Police. 
79   ERR, ’Education ministry seeking close to €120,000 in damages from ex-minister’, 8 January 2021.  
80 ERR, ‘Appellate court finds Teder, Korb, Center Party guilty in Porto Franco case’, 18 March 2024. 
81 ERR, ‘Prosecution charges Kersti Kracht and Hillar Teder’, 1 April 2022.  
82 ERR, ‘Court acquits Port of Tallinn accused’, 27 June 2024. 

10 

 
 
mechanism’83.  As  mentioned  in  the  2023  Rule  of  Law  Report,  to  further  strengthen  the 
guidelines for conflict of interest84, Estonia introduced new procedures, including setting up 
the  anti-corruption  contact  points  (to  support  ministers  and  their  advisors  in  getting 
acquainted  with  the  relevant  rules)85.  In  2023,  the  compulsory  e-training  and  the  raising  of 
awareness  among  ministers and political  advisers were increasingly widespread in practice, 
compared to previous years86. The authorities continued to reward the best performing public 
services87,  with  the  title  of  transparent  policy  maker88.  Civil  society  created  guidelines  of 
good practice in transparent advocacy89. An e-learning course “Prevention of Corruption and 
Conflict  of  Interest  in  the  Public  Sector”  was  made  available  for  public  servants90.  The 
authorities  put  a  strong  focus  on  prevention  and  the  new  procedures  aiming  at  raising 
awareness of rules in place are being implemented91. The authorities raised the specificity of 
this system which is based on soft law and includes close monitoring that leads to detecting 
potential  breaches  which  are,  whenever  needed,  addressed  by  the  criminal  law  rules.  The 
Government  considered  that  there  is  no  need  to  introduce  any  separate  tailor-made 
enforcement  mechanism,  as  the  system  has  proven  to  be  efficient.  According  to  the 
Government,  such  a mechanism would not  fit the current  set-up and it would not  have any 
added value92. Some further progress has been made in view of the 2023 Rule of Law Report 
recommendation,  as  measures  have  been  adopted 
the  efficient 
implementation of the current guidelines without a tailor-made enforcement mechanism. 

to  contribute 

to 

Digital tools are being developed and deployed to ensure a better implementation of the 
existing  rules  on  integrity.  A  digital  tool  developed  to  enhance  the  verification  of  asset 
declarations is expected to be operational in 202593. Another e-tool was developed to assess 
the risks of corruption in the private sector94. Furthermore, civil  society launched an online 
tool (‘Integrity Watch 3.0’) that aims at integrating information from the State Procurement 
Register,  e-Business  Register  data,  and  income  and  receipts  reports  of  political  parties95. 
Also,  an  e-learning  tool  for  universities  was  developed  in  relation  to  business  corruption, 

83   2023 Rule of Law  Report,  Country Chapter on the rule of law situation in Estonia, p. 2. The Commission 
assessed that “[s]ignificant progress on ensuring that the guidelines on the conflict of interests are subject to 
an effective verification, monitoring and enforcement mechanism”. 

84   Estonian Government (2021), Guidelines for Ministers and their advisers to avoid conflicts of interest, paras. 

12-13. 

85   2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 11. 
86   Input from Estonia for the 2024 Rule of Law Report, p. 4. 
87   The  criteria  for  assessing  the  quality  of  the  information  and  making  the  ranking  are  available  at: 
https://public.tableau.com/app/profile/kriminaalpoliitika/viz/Lobikohtumisteteemad/Hindamiskriteeriumid. 

88   Available at: https://www.korruptsioon.ee/et/lobistidega-suhtlemine/kohtumiste-andmed. 
89   The  guidelines created by the Transparency International Estonia together with the  Network of Non-Profit 
Organisations  of  Estonia offer  general  principles  on  how  transparent  advocacy  institutions  should operate. 
The also provides examples of acceptable and unacceptable operations and suggests publishing the sources 
of financing, annual reports, the goals of the institution, its meetings with public officials, etc. Association of 
Non-Governmental Organisations, The Good Practice of Transparent Advocacy.  

90   The course consists of eight open-source learning platform modules and short videos available online. Input 

from Estonia for the 2024 Rule of Law Report, p. 7. 

91   Information received in the context of the country visit to Estonia from the Ministry of Justice. 
92   Annex to the input from Estonia for the 2024 Rule of Law Report. 
93   Information received in the context of the country visit to Estonia from the Ministry of Justice. 
94   Input from Estonia for the 2024 Rule of Law Report, p. 7. 
95   Transparency International Estonia, https://transparency.ee/uudiskirjad/oktoober-november-2023. 

11 

 
 
economic  crimes,  and  business  ethics  96.  In  2023,  the  Ministry  of  Education  and  Research 
adopted detailed Guidelines for the prevention of corruption in educational institutions97. This 
was  accompanied  by  raising  public  awareness  and  education  where  2 000  high  school 
students  were  trained  in  50  schools  over  the  last  six  years  in  the  framework  of  focused 
courses on anti-corruption98.  

The  guidelines  on  lobbying  for  the  Government  continue  being  implemented  with 
success  and  discussions  were  initiated  on  introducing  lobbying  rules  in  Parliament.  In 
2023, the rules regarding lobbying99 continued to be promoted and actively monitored by the 
competent authorities. The analysis of information from the ministries, analysing the quality 
of  conduct  and  updating  the  ranking  of  the  best  performers  continues  to  be  carried  out 
quarterly100.  The  Ministry  of  Justice  and  Transparency  of  Estonia  analysed101  the  data  on 
disclosed  lobbying  meetings  and  launched  the  ranking  of  the  ten  best-performers  in 
December  2023102.  In  line  with  the  GRECO  recommendation103,  political  groups  started 
discussions on possible guidelines on lobbying also for Parliament104. 

Rules on revolving doors are being implemented and additional guidance in this regard 
is  expected  in  2024.  While  the  amendment105  concerning  post-employment  rules  for 
members  of  Government  and  introducing  a  cooling  off  period  of  six  months  is  being 
implemented106, specific guidelines on revolving doors together with possible instructions on 
how  to  mitigate  the  risks  currently  being  developed  by  the  Public  Ethical  Council  are 
expected in 2024107. In parallel, cases of persons moving between political office and private 
companies have been reported108 which calls for ensuring efficiency of the implementation of 
the rules in place. 

New  legislation  on  whistleblower  protection  was  adopted.  The  Anti-Corruption  Action 
Plan  2021-2025109  foresees  the  adoption  of  the  Whistleblower  Protection  Act  110  and  the 

96   Available  at:  https://www.korruptsioon.ee/et/e-ope/koolidele/arieetika-korruptsiooni-ja-majanduskuritegude-

oppematerjal. 

97   Guidelines for the prevention of corruption in educational institutions.  
98   Input from Estonia for the 2024 Rule of Law Report, p. 7. 
99   Estonian  Government (2021),  Good  Practice  in  Communicating  with  Lobbyists  for  Officials.  Summary  of 

lobby meetings. 

100  Input from Estonia for the 2024 Rule of Law Report, p. 4. 
101  The  criteria  for  assessing  the  quality  of  the  information  and  making  the  ranking  is  described  here: 
https://public.tableau.com/app/profile/kriminaalpoliitika/viz/Lobikohtumisteteemad/Hindamiskriteeriumid. 

102  Available at: https://www.korruptsioon.ee/et/lobistidega-suhtlemine/kohtumiste-andmed. 
103  GRECO, Fifth evaluation round, Preventing corruption and promoting integrity in central governments (top 

executive functions) and law enforcement agencies, Evaluation report, Estonia.  

104  Information  received  in  the  context  of  the  country  visit  to  Estonia  from  the  Anti-Corruption  Select 

Committee. 

105  Amendment to the Government of the Republic Act (GRA) (Government of the Republic Act–Riigi Teataja) 

adopted on 1 August 2022 (entered into force on 19 August 2022). 

106  2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, pp. 11-12. 
107  Information received in the context of the country visit to Estonia from the Ministry of Justice. So far, the 
Ethical Council has compiled several guidelines that are  available online: https://www.fin.ee/riigihaldus-ja-
avalik-teenistus-kinnisvara/avalik-teenistus/eetika. 

108  Newsportal Delfi, ‘There seems to be a solution in the labor market. Companies received a hopeful message 

from the Ministry of Economy (in Estonian)’, 2 December 2023.  

109  Anti-Corruption Action Plan 2021 – 2025. 

12 

 
 
establishment  of  an  electronic  whistleblower  reporting  channel111.  The  new  draft  law112 
presented to the Parliament on 11 September 2023 was adopted on 15 May 2024 and it will 
enter into force on 1 September 2024113. The material scope of the current proposal is limited 
to granting protection to persons who report information on breaches relating to the areas of 
EU law listed in  the Whistleblowing Protection Directive  and acquired through their work-
related context; whereas the previous draft law extended the protection also to whistleblowers 
who reported violations of the national legislation114.  

Strengthening the political party financing framework is a priority for the government. 
The  financing  of  the  political  parties  and  contacts  between  the  private  sector  and  policy-
makers  remain  important  topics  115.  Despite  the  long-standing  recommendations  of  the 
Political  Parties  Financing  Surveillance  Committee,  there  has  been  no  modification  of  the 
current rules on the basis of which illegal donations are returned to the donor instead of being 
redirected into the State budget116. The draft law on extending the investigating powers of the 
Committee  through  a  legal  basis  for  requesting  documents,  information  and  explanations 
from  third  parties,  which  was  planned  by  mid-2023117,  is  a  priority  of  the  current 
government118. Among other elements, this is also expected to ensure a reduction in funding 
from  the State budget  for political  parties that have been caught  in  violation of the rules in 
place119.  

The Government has identified a number of areas as being at high risk of corruption. 
The Flash Eurobarometer on Businesses’ attitudes towards corruption in the EU shows that 
7%  of  companies  in  Member  States  (EU  average  27%)  think  that  corruption  has  prevented 

110  On 14 April 2023, the European Commission referred Estonia to the Court of Justice of the European Union, 
transpose  EU 

pursuing 
Directive2019/1937 on the protection of persons reporting breaches of Union law. The case is still pending. 

launched  against  Estonia  for  failure 

infringement  proceedings 

the 

to 

111  Anti-Corruption Action Plan 2021 – 2025. 
112  Act  on  the  Protection  of  Whistleblowers  of  Work-related  Breach  of  European  Union  Law  257  SE  of  11 

September 2023.  

113  Act  on  the  Protection  of  Whistleblowers  of  Work-related  Violations  of  European  Union  Law  of  15  May 

2024. 

114  In  anticipation  of  the  new  legislative  framework,  Transparency  International  introduced  an  e-course  on 
whistleblowing  for  practitioners,  and  has  also  opened  a  centre  to  provide  advice  and  confidentially 
contribute to help solve problems raised by persons who have witnessed misconduct in the workplace and 
help them find the best solution to their case. Transparency International Estonia, Tip-off measures: e-course 
for  practitioners.  Once  the  relevant  legal  framework  is  in  place,  the  centre  will  be  expected  to  provide 
potential whistleblowers with information about their rights and obligations and ensure confidentiality when 
reporting and accessing the results of the investigation. In addition, the centre aims at compiling reports on 
anonymised cases to help identify corruption risks. Transparency International Estonia, Advocacy and Legal 
Advice Centre. 

115  One  case  involved  an  entrepreneur’s  €300,000  donation  to  Centre  Party  which  was  subsequently  rejected. 
ERR, ´Uku Toom, Ratas: Center Party leadership is split’, 6 July 2023. Another case involved a foundation 
that  helped  four  parties  during  the  run-up  to  the  March  2023  elections.  The  Political  Parties  Financing 
Surveillance Committee decided that the free advice constitutes a "prohibited donation". ERR, ’ERJK orders 
parties to return 'donations' to SALK foundation’, 19 October 2023.  

116  Information  received  in  the  context  of  the  country  visit  to  Estonia  from  the  Political  Parties  Financing 

Surveillance Committee. 

117  See 2021 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 8; 2022 Rule of 
Law  Report,  Country  Chapter  on  the  rule  of  law  situation  in  Estonia,  p.  9;  2023  Rule  of  Law  Report, 
Country Chapter on the rule of law situation in Estonia, p. 13. 

118  Information received in the context of the country visit to Estonia from the Ministry of Justice. 
119  Information received in the context of the country visit to Estonia from the Ministry of Justice. 

13 

 
 
them  from  winning  a  public  tender  or  a  public  procurement  contract  in  practice  in  the  last 
three  years120.  Healthcare,  the  local  government  and  political  party  financing121,  public 
procurement122, as well as obtaining residence and work permits are considered to be at high 
risk of corruption123.  

III.  MEDIA PLURALISM AND MEDIA FREEDOM 

In Estonia, the freedom of expression finds legal protection in the Constitution124. Secondary 
legislation  expressly  ensures  the  right  of  journalists  to  protect  their  sources,  fosters  media 
freedom in the radio and television sector125 and provides safeguards for the independence of 
the  public  service  broadcaster126.  The  right  to  information  is  explicitly  recognised  in  the 
Constitution, in the Public Information Act127 and in the Personal Data Protection Act128. 

The  independence  of  the  national  regulatory  authority  has  remained  stable  while  the 
Government  is  examining  possible  legislative  amendments.  Despite  its  relatively  small 
size and limited resources, the national  regulatory authority  –  the Consumer Protection and 
Technical Regulatory Authority - states that it has been able to successfully contribute to the 
work  of  the  European  Regulators  Group  for  Audiovisual  Media  Services  (ERGA)129.  As 
reported  in  the  2023  Rule  of  Law  report,  it  has  been  granted  additional  staff  and  better 
technical tools to monitor the content of media services130 with additional resources possibly 
still to be added in the future131. The MPM 2024 continues to report a low risk with regard to 
the independence and effectiveness of the media authority132. At the same time, the Ministry 
of Culture has gathered views regarding possible changes to the media legislation that could 
affect  the  work  of  the  media  regulator133.  In  particular,  to  prevent  the  dissemination  and 
distribution of information that poses a security threat, the regulatory authority could be given 

120  Flash  Eurobarometer  543  on  Businesses’  attitudes  towards  corruption  in  the  EU  (2024).  This  is  20 

percentage points below the EU average. 

121  2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 10. 
122  Information received in the context of the country visit to Estonia from the Police and Border Guard. 
123  Information received in the context of the country visit to Estonia from the Police and Border Guard. 
124  Constitution of the Republic of Estonia, § 44-46. Estonia ranks 6th in the 2024 Reporters without Borders 

World Press Freedom Index compared to eighth in the previous year. 

125  Media Services Act, §15 and 13. 
126  Estonian  Public  Broadcasting  Act;  According  to  European  Parliament’s  Flash  Eurobarometer:  News  & 
Media Survey 2022, Estonia is among top 3 Member States where citizens demonstrate the highest trust in 
public TV and radio stations (incl. online). 

127  Public Information Act. 
128  Personal Data Protection Act. 
129  Information received from the Consumer Protection and Technical Regulatory Authority in the context of the 

2024 country visit to Estonia. 

130  2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 14. 
131  Information received from the Consumer Protection and Technical Regulatory Authority in the context of the 

2024 country visit to Estonia. 

132  2024 Media Pluralism Monitor, country report for Estonia, p. 15. 
133  In  this  context,  the Authority’s  own  proposal  to  establish  impartiality  requirements for news  broadcasts  to 
fight  foreign  information  manipulation  was  not  well  received  by  journalists,  the  Minister  of  Interior,  the 
Ministry  of  Culture  and  Parliament  (Riigikogu)  who  tend  to  support  self-regulation  instead.  Information 
received  from  the  Consumer  Protection  and  Technical  Regulatory  Authority  in  the  context  of  the  2024 
country visit to Estonia; Estonian Association of Journalists (2023) Statement by the Estonian Association of 
Journalists  on  the  proposal  of  the  Consumer  Protection  and  Technical  Regulatory Authority;  ERR  (2023) 
Interior minister does not support TTJA's media monitoring proposal. 

14 

 
 
more  powers  to  fine  entities  for  retransmitting  content  from  Russian  television134. 
Additionally,  new  rules  are  expected  to  be  proposed,  making  the  licensing  procedure  - 
managed by the media regulator - easier for radio broadcasters in Estonia135. While the media 
market is highly concentrated, Estonian law does not provide for specific rules to control it on 
top of general competition law136. The plurality of media providers is deemed by the MPM 
2024  to  carry  a  high  risk137.  Information  about  the  ownership  of  broadcasting  companies, 
including beneficial owners, is guaranteed by law. While information on owners and ultimate 
beneficial  owners  of  all  types  of  media  companies  is  widely  available,  the  accuracy  of 
information  has  been  suspected  in  a  couple  of  cases138.  The  MPM  2024  considers  the 
transparency  of  media  ownership  to  carry  a  medium  risk  largely  due  to  insufficient  media-
specific legislation139.  

A  legislative  reform  concerning  the  public  service  media  is  being  prepared.  To 
strengthen the independence of the public service media, the Government has been preparing 
a  reform  of  the  relevant  legislative  framework,  the  Public  Broadcasting  Act.  It  has  been 
assisted  by  an  expert  working  group  comprised  of  the  public  service  media,  private  media 
companies and academics. A new legislative proposal is being prepared140, to be followed by 
a public consultation. One of the key points would be guaranteeing better financial stability 
of the public service media141. At the moment, the public service media continues to express 
concerns  about  its  long-term  sustainability  to  produce  public  service  content142,  a  situation 
acknowledged  as  problematic  by  other  stakeholders143  and  exacerbated  by  a  high  inflation 
rate144.  The  future  legislative  reform  would  also  address  the  composition  of  the  Public 
Broadcasting  Council,  which  is  responsible  for  appointing  and  dismissing  members  of  the 
Management Board of the public service media and currently comprises six members of the 
Parliament in addition to four external experts145. Although, in practice, no particular issues 
have  been  identified  until  now146,  this  reform  could  help  limit  any  potential  risks  linked  to 
political  influence  over  the  public  service  media  regarding  the  appointment  and  funding 

134  ERR (2024) Draft bill to enable fines for Estonian care homes showing Russian TV channels. 
135  Information received from the Consumer Protection and Technical Regulatory Authority in the context of the 

2024 country visit to Estonia. 

136  Lauk, E., Oller Alonso, M. & Harro-Loit, H. (2024) Monitoring Mediascapes – A Premise of Wisdom-Based 
EU Media Governance, p. 111; 2022 Rule of Law Report, Country Chapter on the rule of law situation in 
Estonia, p. 11. 

137  2024 Media Pluralism Monitor, country report for Estonia, p. 19. 
138  2024 Media Pluralism Monitor, country report for Estonia, pp. 18-19 
139  Ibidem. 
140  Ministry of Culture (2024) Intention to develop a draft act amending the Estonian Public Broadcasting Act. 
141  Information received from the Ministry of Culture and the public service media in the context of the 2024 

country visit to Estonia. 

142  Information received from the public service media in the context of the country visit to Estonia. 
143  Information  received  from  the  Estonian  Press  Council  and  the  Estonian Association  of  Journalists  in  the 

context of the 2024 country visit to Estonia. 

144  Information received from the public service media in the context of the 2024 country visit to Estonia; The 
annual rate of change for inflation in Estonia reached 25.2% in August 2022 and in February 2024, it was 
still above the EU and eurozone average. Information about inflation rates is available at Eurostat, European 
Statistical Monitor.  

145  As reported in the 2022 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 11. 
146  2024  Media  Pluralism  Monitor,  country  report  for  Estonia,  pp.  9  and  28;  According  to  European 
Parliament’s Flash Eurobarometer: News & Media Survey 2023, while Estonia ranks among Member States 
where citizens demonstrate the highest trust in public TV and radio stations (incl. online), the level of trust 
has somewhat decreased between 2022 and 2023. 

15 

 
 
processes,  generally  identified  as  constituting  a high  risk  to  the  independence  of  the  public 
service media by the MPM 2024.  

Some further progress has been made, concerning the right of access to information, as 
the government is preparing an analysis regarding the Public Information Act and has 
made public information with unrestricted access proactively available online. The 2023 
Rule  of  Law  Report  recommended  Estonia  to  ‘[e]nsure  consistent  and  effective  practical 
implementation of the right of access to information taking into account European standards 
on  access  to  official  documents’147.  Following  an  independent  study  procured  by  the 
Parliament  which  identified  key  problems  related  to  access  to  public  information148,  the 
Ministry  of  Justice  is  preparing  an  analysis  regarding  the  Public  Information  Act  based  on 
proposals  for  better  implementation  of  the  legislation  from  a  specifically  formed  working 
group149. Public information with unrestricted access held by public authorities has also been 
proactively made available in a machine-readable format through a new open data portal150. 
In the meanwhile, stakeholders continue to flag that the rules and practices for the release of 
information vary amongst authorities151. There has been a call for an organisation to secure 
transparency of public information152. The MPM 2024 maintains a medium risk with regard 
to  the  protection  of  right  to  information,  although  it  has  been  reduced  over  the  past  two 
years153.  Thus,  some  further  progress  has  been  made  on  the  recommendation  made  in  the 
previous years. 

The framework for the protection of Estonian journalists remains stable while possible 
legal actions by politicians and business owners have been referred to as a growing risk. 
The MPM 2024 deems the legal protection of freedom of expression in the Constitution to be 
robust  and  to  enjoy  good  implementation  in  practice154.  It  finds  a  low  and  reduced  risk 
regarding the protection of freedom of expression compared to the previous year155. Since the 
2023 Rule of Law report,  no new alerts  for Estonia have been published on the Council of 
Europe’s  Platform  to  promote  the  protection  of  journalism  and  safety  of  journalists156,  and 
one alert was registered on the Mapping Media Freedom platform157. The situation regarding 
the  protection  of  journalists  has  remained  stable.  However,  possible  legal  actions  by 

147  2022 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 2; 2023 Rule of Law 
Report, Country Chapter on the rule of law situation in Estonia, p. 2. The Commission assessed that “[s]ome 
progress on ensuring consistent and effective practical implementation of the right of access to information 
taking into account European standards on access to official documents". 

148  As reported in the 2023 Rule of Law Report, Country Chapter on the rule of law situation in Estonia, p. 15. 
149  Information  received  from  the  Ministry  of  Justice  in  the  context  of  the  2024  country  visit  to  Estonia; 

Ministry of Justice (2024) Public Information. 

150  Estonian Open Data Portal. 
151  Information  received  from  the  Estonian  Press  Council  and  the  Estonian Association  of  Journalists  in  the 
context of the 2024 country visit to Estonia; 2024 Media Pluralism Monitor, country report for Estonia, p. 8. 
152  Mediadelcom (2023) Recommendations for media governance  - Policy Brief, p. 29. It should be noted that 
according  to  the  public  authorities,  the  Data  Protection  Inspectorate  is  also  responsible  for  supervision  of 
compliance with the Public Information Act and legislation established on the basis thereof (see § 44-53of 
the Public Information Act). 

153  2024 Media Pluralism Monitor, country report for Estonia, p. 13. 
154  2024 Media Pluralism Monitor, country report for Estonia, p. 12. 
155  2024 Media Pluralism Monitor, country report for Estonia, pp. 12-13. 
156  Council of Europe, Platform to promote the protection of journalism and safety of journalists, Estonia. 
157  It  relates  to  vandalisation  of  property  of  an  editor-in-chief  of  a  Russian-language  news  portal; 

https://www.mfrr.eu/monitor/. 

16 

 
 
politicians  and  business  owners  have  been  referred  to  as  a  growing  risk  particularly  to 
investigative journalists158. 

IV.  OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES 

Estonia is a parliamentary republic with a single-chamber Parliament. Estonia does not have a 
Constitutional court but the Supreme Court’s Constitutional Review Chamber can carry out 
ex  post  constitutional  review,  including,  under  certain  conditions,  based  on  a  constitutional 
complaint159.  In addition  to the justice system, the  Office of the Chancellor for Justice (the 
ombudsperson), which is the National Human Rights Institution, and the Gender Equality and 
Equal  Treatment  Commissioner160  play  a  role161  in  the  system  of  checks  and  balances. 
Involvement  of  the  public  and  stakeholders  in  public  affairs  is  supported  by  advanced 
Information and Communication Technology tools. 

Frequent use of procedures allowing for substantial delays to the legislative process in 
Parliament have triggered a reaction, resulting in the Government using the accelerated 
legislative  workflows  more  often.  Stakeholders  have  reported  that  during  the  reporting 
period, the legislative process in Parliament has been held up due to the possibility to table a 
significant  number  of  amendments162  to  every  draft  law,  which  delays  the  adoption 
process163. The Government has been making more frequent use of a constitutional provision 
which allows it to align the vote on a specific law with a confidence vote164. This procedure 
aims  at  speeding  up  the  legislative  process  by  avoiding  certain  procedural  steps165.  This 
includes the shortening or even completely removing the public consultation process and the 
involvement of stakeholders in the decision-making process166. The current situation has the 

158  Information  received  from  the  Estonian  Press  Council  and  the  Estonian Association  of  Journalists  in  the 
context of the 2024 country visit to Estonia; Mediadelcom (2023) Recommendations for media governance - 
Policy  Brief,  p.  28;  2024  Media  Pluralism  Monitor,  country  report  for  Estonia,  p.  14.  In  addition,  in 
September 2023, stakeholders have raised concerns about an incident involving a public figure who filed an 
out-of-court  claim  against  an  author  of  an  opinion  article  about  his  alleged  business  ties  with  Russia. 
Information  received  from  the  Estonian  Press  Council  and  the  Estonian Association  of  Journalists  in  the 
context of the 2024 country visit to Estonia. 

159  § 4 of the Constitutional Review Court Procedure Act – A complaint can be referred to the Supreme Court’s 
Constitutional  Review  Chamber  by  the  President  of  the  Republic,  the  Chancellor  of  Justice,  a  local 
government  council  and  the  Parliament.  §  9  of  the  Constitutional  Review  Court  Procedure  Act  – 
Constitutional review on the basis of court judgment or court ruling is also possible. 

160  The equality body of Estonia. 
161  The  Chancellor  of  Justice  has  a  broad  mandate,  including  acting  as  the  National  Preventive  Mechanism 
under  the  UN  Convention  Against  Torture  and  the  National  Monitoring  Mechanism  under  the  UN 
Convention on the Rights of Persons with Disabilities. The Chancellor of Justice also performs the functions 
of the Ombudsperson for Children.  

162  In some situations more than 2000 amendments have been tabled. 
163  Information  received  from  the  Chancellor  of  Justice,  Estonian  Bar  Association,  and  Open  Estonia 

Foundation in the context of the country visit to Estonia.  

164  § 98 of the Constitution. “The Government of the Republic may bind the adoption of a bill it introduces to 
the Riigikogu to the issue of confidence. Voting cannot take place earlier than on the second day after the 
bill  is  bound  to  the  issue  of  confidence.  If  the  Riigikogu  does  not  adopt  the  bill,  the  Government  shall 
resign.” 

165  § 95 and § 135 to 138 of the Riigikogu Rules of Procedure and Internal Rules Act. For example, A member 

of the Riigikogu may ask up to two oral questions of the presenter. 

166  Information  received  from  the  Chancellor  of  Justice,  Estonian  Bar  Association,  and  Open  Estonia 
Foundation in the context of the country visit to Estonia. The Venice Commission has noted that “while the 
opposition  in  a  democratic  society  has  its  role  and  functions,  these  should  not  be  perceived  as  a  mere 

17 

 
 
 
consequence  of  restricting  an  inclusive  public  debate  and  the  evidence-informed  policy-
making which is important for the system of checks and balances. 167.  

A  draft  reform  envisages  more  financial  autonomy  for  the  Chancellor  of  Justice,  who 
remains actively engaged in upholding the rule of law. Тhe Chancellor of Justice, which is 
the National Human Rights Institution (NHRI) has an A-status accreditation168. In February 
2024,  the  Government  prepared  a  draft  law  to  improve  the  financial  autonomy  of  the 
Chancellor  of  Justice  and  of  the  National  Audit  Office169.  Currently,  the  budget  of  these 
institutions  is  established  by  submission  of  a  request  to  the  Ministry  of  Finance,  following 
which  it  is  discussed  and  approved  by  the  Government,  and  then  reaches  Parliament  for  a 
final  deliberation  and  vote.  The  draft  reform  envisages  direct  access  for  the  Chancellor  of 
Justice and the National Audit Office to Parliament when discussing their budgets, removing 
the role of the executive in that respect170. The Chancellor of Justice continues to have an A-
status  accreditation  from  GANHRI171  and  continues  to  play  an  active  role  in  upholding the 
rule  of  law.  In  2023,  the  Chancellor  of  Justice  made  22  proposals  to  bring  legislation  in 
conformity with the Constitution172, and provided 13 opinions during ongoing constitutional 
review  proceedings173.  The  Chancellor  did  not  find  a  reason  to  initiate  disciplinary 
proceedings in respect of a judge in any of the cases it has reviewed174. 

On  1  January  2024,  Estonia  had  three  leading  judgment  of  the  European  Court  of 
Human  Rights  pending  implementation,  the  same  number  as  the  previous  year175.  At 
that time, Estonia’s rate of leading judgments from the past 10 years that remained pending 
was  at  15%  (compared  to  14%  in  2023)  and  the  average  time  that  the  judgment  had  been 

mechanism of obstruction and should contribute substantially to the decision-making process”. See Venice 
Commission  Report  on  the  role  of  the  opposition  in  a  democratic  parliament  (CDL-AD(2010)025),  para. 
156. Furthermore, according to European Standards, the system should represent a majority that should be 
able  to  pursue  its  political  agenda  and  the  opposition,  on  its  side,  should  not  indulge  in  a  deliberate 
obstruction of the normal work of Parliament. See Venice Commission Opinion (CDL-AD(2010)025), para. 
13; and Checklist on the relationship between the Parliamentary majority and the opposition in a democracy, 
para. 27. 

167  Commission recommendation on promoting the engagement and effective participation of citizens and civil 
society  organisations  in  public  policy-making  processes  (C/2023/8627  final).  In  Estonia,  27%  of  the 
surveyed  companies  perceive  the  frequent  changes  in  legislation  or  concerns  about  quality  of  law-making 
process  as  a  reason  for  the  lack  of  confidence  in  investment  protection.  Figure  56,  2024  EU  Justice 
Scoreboard. 

168  Accreditation by the Global Alliance of National Human Rights Institutions (GANHRI). 
169  Information received from the Chancellor of Justice in the context of the country visit to Estonia.  
170  Information received from the Chancellor of Justice in the context of the country visit to Estonia.  
171  Global Alliance of National Human Rights Institutions. 
172  For  15  proposals  there  was  a  follow-up  by  Parliament,  while  for  seven  there  has  been  no  feedback. 

Information received from the Chancellor of Justice in the context of the country visit to Estonia. 

173  See Input from Estonia for the preparation of the 2024 Rule of Law Report, p. 13.  
174  See previous footnote. 
175  The  adoption of necessary execution measures for a  judgment by the European Court of Human Rights is 
supervised by the Committee of Ministers of the Council of Europe. It is the Committee’s practice to group 
cases against a State requiring similar execution measures, particularly general measures, and examine them 
jointly. The first case in the group is designated as the leading case as regards the supervision of the general 
measures and repetitive cases within the group can be closed when it is assessed that all possible individual 
measures needed to provide redress to the applicant have been taken. 

18 

 
 
pending  implementation  was  1  year  and  5  months  (compared  to  11  months  in  2023)176.  As 
regards the respect of payment deadlines, on 31 December 2023 there were no cases awaiting 
confirmation  of payments (the same as in  2022)177. On 1 July 2024, the number of leading 
judgments pending implementation had increased to five178. 

The  practice  of  allocating  funding  to  civil  society  organisations  (CSOs)  through 
Parliament without concrete criteria has been discontinued. The civic space in Estonia is 
considered  to  be  open179.  To  further  strenghten  it,  the  ruling  coalition  discontinued  the 
practice  of  using  a  state  budget  line  where  members  of  Parliament  can  distribute  grants  to 
CSOs, without clear criteria or evaluation procedures. While for the 2023 budget, 478 entities 
were awarded a grant180, the 2024 budget did not include any such grant to CSOs181.  

176  All figures are calculated by the European Implementation Network and are based on the number of cases 
that  are  considered  pending  at  the  annual  cut-off  date  of  1  January  2024.  See  the  Contribution  from  the 
European Implementation Network for the 2024 Rule of Law Report, p. 3. 

177  Council  of  Europe  (2024),  Supervision  of  the  execution  of  judgments  decisions  of  the  European  Court  of 

Human Rights – 17th Annual Report of the Committee of Ministers – 2023, p. 137.  

178  Data according to the online database of the Council of Europe (HUDOC). 
179  See  rating  given  by  Civicus,  Estonia.  Ratings  are  on  a  five-category  scale  defined  as:  open,  narrowed, 

obstructed, repressed and closed. 

180  See State budget Act for 2023. With individual grants varying between EUR 2 000 and EUR 39 000; with a 

total amount of money spent EUR 3 390 000. 

181  State budget Act for 2023. 

19 

 
 
 
Annex I: List of sources in alphabetical order* 

* The list of contributions received in the context of the consultation for the 2024 Rule of Law report 
can 
https://commission.europa.eu/publications/2024-rule-law-report-targeted-
stakeholder-consultation_en. 

found 

be 

at 

Act on the Protection of Whistleblowers of Work-related Breach of European Union Law 257 SE of 
11 September 2023. 

Act  on the  Protection  of Whistleblowers  of Work-related  Violations  of  European  Union  Law  of 15 
May 2024. 

Amendment to the Government of the Republic Act (GRA) (Government of the Republic Act–Riigi 
Teataja) adopted on 1 August 2022 (entered into force on 19 August 2022). 

Association  of  Non-Governmental  Organisations,  The  Good  Practice  of  Transparent  Advocacy, 
https://heakodanik.ee/labipaistva-huvikaitse-hea-tava/.  

Centre  for  Media  Pluralism  and  Media  Freedom  (2024),  Media  pluralism  monitor  2024  –  country 
report on Estonia. 

Civicus, Monitor tracking civic space – Estonia, https://monitor.civicus.org/country/estonia/. 

Consultative Council of European Judges on the Specialisation of Judges (2012), Opinion (2012) No. 
15. 

Council of Bars and Law Societies of Europe (CCBE) (2024), Contribution of the CCBE for the 2024 
Rule of Law Report. 

Council  of  Europe:  Committee  of  Ministers  (2010),  Recommendation  CM/Rec(2010)12  of  the 
Committee of Ministers to member states on judges: independence, efficiency and responsibilities. 

Council  of  Europe,  Platform  to  promote  the  protection  of  journalism  and  safety  of  journalists  – 
Estonia, https://fom.coe.int/en/pays/detail/11709506. 

Council of Europe: Venice Commission (2010), Report on the role of the opposition in a democratic 
parliament (CDL-AD(2010)025). 

Council of Europe: Venice Commission (2020), Bulgaria - Urgent interim opinion on the draft new 
constitution (CDL-AD(2020)035). 

Court of Justice of the European Union, judgment of 27 February 2018, C-64/16, Associação 
Sindical dos Juízes Portugueses, ECLI:EU:C:2018:117. 

Corruption  prevention  contacts 
ennetus/korruptsiooni-ennetuse-kontaktid-ministeeriumides. 

in  ministries,  https://www.korruptsioon.ee/et/korruptsiooni-

Daily  Postimees  (2023),  Concerns  of  the  Central  Criminal  Police:  private  sector  corruption  and 
campaign, 
municipalities 
https://www.postimees.ee/7917372/keskkriminaalpolitsei-mured-erasektori-korruptsioon-ning-
valimiskampaanias-kuriteokaebusi-esitavad-omavalitsused. 

complaints 

election 

subject 

crime 

the 

to 

in 

Delfi  (2023),  The  Prime  Minister's  husband  submitted  a  claim  for  damages  to  Valdar  Parve,  who 
criticised him for his "spiritual survivals" (Peaministri abikaasa esitas „hingeliste üleelamiste“ eest 
teda kritiseerinud Valdar Parvele kahjunõude), https://www.delfi.ee/artikkel/120235091/peaministri-
abikaasa-esitas-hingeliste-uleelamiste-eest-teda-kritiseerinud-valdar-parvele-kahjunoude. 

ERR  (2024),  Draft  bill  to  enable  fines  for  Estonian  care  homes  showing  Russian  TV  channels, 
https://news.err.ee/1609250574/draft-bill-to-enable-fines-for-estonian-care-homes-showing-russian-
tv-channels. 

ERR  news  (2023),  Biggest  pay  rise  ever  for  senior  civil  servants  in  four  years'  time, 
https://news.err.ee/1609197688/biggest-pay-rise-ever-for-senior-civil-servants-in-four-years-time.  

20 

 
ERR  news  (2023),  Editor:  Kallas’  husband’s  damages  claim  shows  desire  to  silence  press, 
https://news.err.ee/1609114280/editor-kallas-husband-s-damages-claim-shows-desire-to-silence-
press. 

ERR  news  (2023),  Interior  minister  does  not  support  TTJA's  media  monitoring  proposal, 
https://news.err.ee/1609025291/interior-minister-does-not-support-ttja-s-media-monitoring-proposal. 

Education  material  on  business  ethics,  corruption  and  economic  crimes,  Educational  material  on 
business ethics, corruption and economic crimes | Korruptsioon.ee. 

ERR  (2023),  ‘Belitšev:  Central  Criminal  Police,  PPA  officials  involved  in  fraud  case,  Central 
Criminal Police, PPA officials involved in fraud case | News | ERR. 

ERR  (2021),  Education  ministry  seeking  close  to  €120,000  in  damages  from  ex-minister, 
https://news.err.ee/1608429668/education-ministry-seeking-close-to-120-000-in-damages-from-ex-
minister. 

ERR  (2023),  Estonian  customs  chief,  PPA  director  detained  on  fraud-related  suspicions,  Estonian 
customs chief, PPA director detained on fraud-related suspicions | News | ERR. 

(2023),  ERJK 

ERR 
https://news.err.ee/1609138859/erjk-orders-parties-to-return-donations-to-salk-foundation. 

'donations' 

parties 

orders 

return 

to 

to  SALK  Foundation, 

ERR (2023), Uku Toom, Ratas: Center Party leadership is split, https://news.err.ee/1609027439/ratas-
center-party-leadership-is-split. 

ERR  (2024),  Appellate  court  finds  Teder,  Korb,  Center  Party  guilty  in  Porto  Franco  case, 
https://news.err.ee/1609285917/appellate-court-finds-teder-korb-center-party-guilty-in-porto-franco-
case 

ERR 
charges 
https://news.err.ee/1608551896/prosecution-charges-kersti-kracht-and-hillar-teder 

Prosecution 

(2022), 

Kracht 

Kersti 

and 

Hillar 

Teder 

, 

ERR  (2024),  Court  acquits  Port  of  Tallinn  accused,  https://news.err.ee/1609382693/court-acquits-
port-of-tallinn-accused 

Estonian Parliament (2021), Draft Whistleblower Protection Act. 

Estonian  Government  (2021),  Good  Practice  in  Communicating  with  Lobbyists  for  Officials. 
Summary of lobby meetings. 

Estonian  Government  (2021),  Guidelines  for  Ministers  and  their  advisers  to  avoid  conflicts  of 
interest. 

European Public Prosecutor’s Office (2024), 2023 Annual Report.  

Estonian Association of Journalists (2023), Statement by the Estonian Association of Journalists on 
the  proposal  of  the  Consumer  Protection  and  Technical  Regulatory  Authority  (Eesti  Ajakirjanike 
Liidu 
ettepanekust), 
https://eal.ee/pr/20230704.html. 

Tarbijakaitse 

Järelvalve 

Tehnilise 

avaldus 

Ameti 

ja 

Estonian  Association  of  Media  Companies  (2023),  Editors-in-chief:  Kaja  Kallas’  government’s  tax 
reform  increases  the  influence  of  propaganda  and  foreign  channels  (Peatoimetajad:  Kaja  Kallase 
valitsuse 
mõju), 
https://meedialiit.ee/peatoimetajad-kaja-kallase-valitsuse-maksureform-kasvatab-propaganda-ja-
valiskanalite-moju/. 

maksureform 

väliskanalite 

propaganda 

kasvatab 

ja 

Estonian Association of Media Companies (2023), European and world media publishers deplore the 
increase  in  VAT  on  journalism  in  Estonia  (Euroopa  ja  maailma  meediakirjastajad  taunivad  Eestis 
ajakirjanduse  käibemaksu 
tõstmist),  https://meedialiit.ee/euroopa-ja-maailma-meediakirjastajad-
taunivad-eestis-ajakirjanduse-kaibemaksu-tostmist/. 

Estonian Open Data Portal: https://avaandmed.eesti.ee/. 

21 

 
Euromedia  Ownership  Monitor  (2023),  Country  report  by  Halliki  Harro-Loit  and  Urmas  Loit, 
https://media-ownership.eu/findings/countries/estonia/. 

European  Centre  for  Press  and  Media  Freedom,  Mapping  Media  Freedom  –  Estonia, 
https://www.mappingmediafreedom.org/. 

European Commission (2020), 2020 Rule of Law Report, Country Chapter on the rule of law situation 
in Estonia. 

European Commission (2021), 2021 Rule of Law Report, Country Chapter on the rule of law situation 
in Estonia. 

European Commission (2022), 2022 Rule of Law Report, Country Chapter on the rule of law situation 
in Estonia. 

European Commission (2023), 2023 Rule of Law Report, Country Chapter on the rule of law situation 
in Estonia. 

European  Commission  (2023),  Commission  recommendation  on  promoting  the  engagement  and 
effective  participation  of  citizens  and  civil  society  organisations  in  public  policy-making  processes 
(C/2023/8627 final). 

European Commission (2024), 2024 EU Justice Scoreboard. 

European Implementation Network (2023), Contribution from the European Implementation Network 
for the 2023 Rule of Law Report. 

European  Parliament (2023),  Flash  Eurobarometer: News  &  Media  Survey  2023,  EB-ID:  FL012EP 
https://europa.eu/eurobarometer/surveys/detail/3153. 

Eurostat,  European  Statistical  Monitor:  https://ec.europa.eu/eurostat/cache/dashboard/european-
statistical-monitor/?countries=EU,EA&indicator=DB. 

GRECO (2021), Fifth evaluation round – Compliance report on Preventing corruption and promoting 
integrity in central governments (top executive functions) and law enforcement agencies. 

for 

Guidelines 
https://www.korruptsioon.ee/et/juhendid-kkk/korruptsiooniennetus-ja-huvide-konflikti-valtimine-
oppeasutustes. 

educational 

prevention 

corruption 

the 

of 

in 

institutions, 

Lauk, E., Oller Alonso, M. & Harro-Loit, H. (2024) Monitoring Mediascapes – A Premise of Wisdom-
Based EU Media Governance. 

Mediadelcom 
https://www.mediadelcom.eu/publications/d55-recommendations/. 

Recommendations 

for  media 

(2023), 

governance 

- 

Policy 

Brief, 

Ministry  of  Culture  (2024),  Intention  to  develop  a  draft  act  amending  the  Estonian  Public 
https://eelnoud.valitsus.ee/main/mount/docList/55e271c7-bce4-4343-819e-
Broadcasting 
d7158d90f77b#c2g6RmI8. 

Act, 

of 

Ministry 
https://www.korruptsioon.ee/sites/default/files/2023-
07/anticorruptionactionplan20212025%20%281%29.pdf.  

Anti-Corruption 

(2021), 

Justice 

Action 

Plan 

2021 

– 

2025, 

Ministry 
oigus/haldusoigus/avalik-teave. 

Justice 

of 

(2024), 

Public 

information, 

https://www.just.ee/era-ja-avalik-

Newsportal  Delfi  (2023),  There  seems  to  be  a  solution  in  the  labor  market.  Companies  received  a 
hopeful 
Economy, 
the 
https://arileht.delfi.ee/artikkel/120252218/toojouturul-paistab-lahendus-ettevotted-said-
majandusministeeriumilt-lootustandva-sonumi.  

Ministry 

message 

from 

of 

22 

 
(2022), 

Politico 
https://www.politico.eu/article/estonia-europe-inflation-hotspot-eurozone-russia-ukraine-war-
economy/. 

Welcome 

Europe’s 

inflation 

hotspot: 

to 

Estonia, 

Reporters without Borders (2024), World Press Freedom Index, Estonia, https://rsf.org/en/estonia. 

The  criteria  and  details  for  assessing  the  quality  of  the  information  and  making  the  lobby  ranking, 
Lobikohtumiste teemad | Tableau Public, Appointment details | Korruptsioon.ee. 

Transparency 
https://transparency.ee/vihjeandmise-meetmed-e-kursus-praktikutele. 

Tip-off  measures: 

International 

Estonia, 

e-course 

for 

practitioners, 

Transparency International Estonia, Advocacy and Legal Advice Centre, Advocacy and Legal Advice 
Centre | Korruptsioonivaba Eesti (transparency.ee). 

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Transparency International, Corruption Perceptions Index 2023 (2024).  

23 

 
Annex II: Country visit to Estonia 

The Commission services held virtual meetings in February 2024 with: 

•  Anti-corruption Select Committee 
•  Consumer protection and Technical Regulatory Authority 
•  Constitutional Review Chamber of the Supreme Court 
•  Council for the Administration of Courts 
•  Estonian Association of Journalists 
•  Estonian Association of Judges 
•  Estonian Bar Association 
•  Estonian Internal Security Service 
•  Estonian Public Broadcasting 
•  Estonian Press Council 
•  Ministry of Culture 
•  Ministry of Foreign Affairs 
•  Ministry of Interior 
•  Ministry of Justice 
•  National Audit Office 
•  Office of the Chancellor of Justice 
•  Open Estonia Foundation 
•  Political Party Financing Surveillance Committee 
•  Police and Border Guard Board 
•  The Prosecutor’s Office 
•  The Supreme Court  
•  Transparency International – Estonia 

* The Commission also met the following organisations in a number of horizontal meetings:  

•  Amnesty International EU 
•  Centre for Democracy and Technology Europe  
•  Centre for European Volunteering 
•  Civil Liberties Union for Europe 
•  Civil Rights Defenders 
•  Civil Society Europe 
•  Culture Action Europe 
•  Democracy Reporting International 
•  European Centre for Non-Profit Law 
•  European Civic Forum 
•  European Federation of Journalists  
•  European Partnership for Democracy 
•  European Youth Forum 
•  Free Press Unlimited 
• 
• 
• 

International Federation for Human Rights 
International Planned Parenthood Federation 
International Press Institute  

24 

 
 
Irish Council for Civil Liberties 

• 
•  JEF Europe 
•  Open Society Foundations 
•  Philanthropy Europe Association 
•  PICUM 
•  Reporters Without Borders 
•  SOLIDAR 
•  Transparency International EU 

25