New approach
In order to better address simultaneous and rapid developments that are shaping human wellbeing and the living environment, the Ministry of Climate co-drafted a plan for cross-sectoral pathways that entail interaction between modern economy, security, fair transition and climate adaptation.
For earlier work with previous clean transition action plan please see below.
Objectives
The objectives of the Estonian clean transition are established to simultaneously fulfil the obligations arising from the European Green Deal and ensure the competitiveness of our economy and the well-being of our citizens. Three objectives of the green reform:
To mitigate and adapt to climate change, reduce environmental pollution and preserve biodiversity, a systemic change is needed in areas related to energy production and reduction of energy use, construction and use of transport and infrastructure, food and agriculture, buildings and spatial planning, forestry, land use and agriculture as well as the use of resources and materials.
The achievement of the objectives is influenced by the following aspects:
1. The state of biodiversity in the world has significantly deteriorated and a number of ecosystems are on the brink of collapse. Over the past 50 years, the direct and indirect drivers of change in biodiversity have changed at an accelerated pace. The five most important are: changes in land and sea use, exploitation of organisms, climate change, pollution and alien species.
2. Reducing greenhouse gas emissions and increasing greenhouse gas removals over the next 10 years will be pivotal in achieving the long-term objectives. In 2021, a total of 52.1% of Estonia’s greenhouse gas emissions were attributed to the energy sector, 18.8% to the land use, land use change and forestry sector, 15.1% to the transport sector and 10.2% to agriculture. Changes in these four sectors will thus have the greatest impact. The forestry and land use sector is the only sector on an international scale that sequesters greenhouse gases, which is why the measures in this sector are key to achieving climate neutrality in Estonia. To make the objectives set for 2030 achievable, it is necessary to establish sector-specific greenhouse gas reduction targets, measures and a corresponding investment plan. It is also necessary to establish sector-specific objectives in a manner that ensures legal certainty when planning private sector investments.
3. The average temperature of the planet has increased by an estimated 1.1 degrees compared to pre-industrial revolution levels and, to adapt to its effects, it is necessary to implement climate change adaptation measures in all sectors. Of particular importance are the impacts on human health (most directly related to the increased frequency of heatwaves, storms and torrential rainfall) and rescue capability (in relation to extensive torrential rainfall and forest fires), land use and planning (eg to tackle increasing levels of precipitation), the natural environment (eg precipitation and temperature affect biodiversity as a whole, as well as different ecosystems) and the bioeconomy (eg in agriculture, affecting the yield of crops, and in forestry due to changes in forest composition and pest infestations).
4. Despite tangible progress, in 2015 environmental pollution still accounted for 16% of all premature deaths. Environmental pollution poses a threat to both human health and biodiversity, contributing significantly to the ongoing loss of biodiversity.
5. To bring about permanent changes, it is necessary to understand the impact of all planned investments and measures on the reduction of greenhouse gas emissions and the conservation of biodiversity and these impacts must be taken into consideration when devising investment plans and measures. The principles of just transition must be considered throughout the process of formulating and implementing green reform measures, while also keeping in mind all vulnerable groups and regions and the most affected sectors across Estonia.
A high-quality living environment contributes to overall well-being, with public spaces and buildings playing a central role in this. The living environment is a bearer of our culture. Its quality affects the quality of life of everyone. We must work together to ensure that the living environment becomes more environmentally friendly, safer and more inspiring with every spatial decision.
The achievement of the objectives is influenced by the following aspects:
1. Living environment and spatial design require comprehensive strategic planning and implementation. It is influenced by different policy areas (including architectural, land, landscape, regional, cultural, construction, social and environmental policies), the interplay and synergy of which form the basis of holistic policy-making.
2. The living environment needs to be adapted to specific circumstances at both the municipal and individual levels.
3. Local governments, in co-operation with the state, play a crucial role in shaping a high-quality living environment.
A greener and more sustainable economic model, ie development aimed at promoting the green economy, which minimises environmental risks and pressure on natural resources, maintains low greenhouse gas emissions, is resource efficient, fosters social inclusivity and enhances the well-being of people along with social justice. With the transition to a new economic model, we will maintain and promote our position in the EU market.
The achievement of the objectives is influenced by the following aspects:
1. To encourage investments, the state must have a clear objective, regulatory basis and a supportive framework.
2. The state can significantly influence the adoption of sustainable solutions through governance and leading by example.
3. High-quality and accessible data are the basis for the creation of new products and services and the implementation of sustainable investments. Modern challenges require appropriate education and skills.
4. The effective application of circular economy principles in different sectors contributes significantly to the achievement of climate neutrality and is critical for decoupling economic growth from resource consumption, taking into account the following: » both renewable and non-renewable resources should be used in a balanced way, maximising their valorisation; » material circulation and alternative material sources have significant potential to replace critical raw materials needed for the new economic model.
5. Considering the strengths of Estonia and global trends, the combined effect of the green and digital transition gives Estonia a substantial competitive advantage.
6. Estonia must also be capable of supplying the green technologies required for the green transition itself.
Clean Transition Action Plan
The Clean Transition Action Plan is a cross-cutting framework outlining the necessary actions to achieve long-term environmental and climate goals. The Action Plan for 2023-2025 was approved by the Government of the Republic on 17 August 2023.
The Clean Transition Action Plan sets out the objectives, tasks and priorities of the green reform. To achieve the three primary objectives of the green reform, the action plan focuses on the necessary activities in the following ten areas:
In the energy sector, it is essential to ensure energy security (incl security of supply), accessibility and affordability of energy and the reduction of environmental impacts. Energy also plays a critical role in maintaining the competitiveness of the economy. Estonia aims to produce all energy consumed in Estonia using renewable energy sources by 2030. This means that by 2030, at least 65% of all energy produced in Estonia will come from renewable energy sources.
The main strands of action are:
- Promoting energy efficiency
- Increasing the capacity of transmission and distribution networks
- Renewable energy covers 100% of consumption by 2030
- Transitioning heating and cooling to renewable energy
- Launching the renewable energy storage market
- Promoting the production capacity and consumption of environmentally friendly energy carriers
The primary emphasis in addressing climate change in the coming years should be on agreeing and implementing the measures necessary for achieving the country’s 2030 climate objectives. This process significantly influences the development of all other sectors in Estonia and shapes our trajectory toward the 2050 climate objectives.
The main strands of action are:
- Achieving the 2030 and 2050 mitigation targets
- Implementing measures to ensure climate change adaptation
The changes associated with the green reform are closely linked to the just transition from a fossil-based economy to an economy powered by renewable energy sources. The region in Estonia most reliant on fossil fuels is Ida Viru County for which funds from the EU’s Just Transition Fund can be used to ensure a just transition.
The main strands of action are:
- Implementation of the Just Transition Plan for Ida-Viru County in the context of the economy and workforce
- Implementation of the Just Transition Plan for Ida-Viru County in the context of the environment and social inclusion
- Addressing regional and sectoral differences within Estonia in the green transition
High-quality spatial design requires the co-creational design and implementation of different policies, including architectural, real estate, construction, planning and land use policies. Integrated policy-making contributes to the development of a sustainable living and natural environment (including mobility and land use planning), while taking into account population and climate forecasts. In addition, it is crucial to address the long-term population decline in many regions and the urban sprawl of the centres of attraction in spatial planning in a way that prioritises sustainable solutions.
The main strands of action are:
- Spatial design based on sustainable development principles
- Introducing a lifecycle approach in the construction sector
- Reconstructing buildings to be energy efficient
- Digitalisation of the construction sector
Biodiversity and land use are closely interconnected and it is important that in our land use decisions that we prioritise the achievement of climate and environmental objectives. The biggest challenge in the upcoming years will thus be finding a balance between land use, the use of bio-resources, the achievement of climate objectives and the conservation of biodiversity. When planning the achievement of climate objectives, it is imperative to ensure that biodiversity objectives are not compromised, as biodiversity protection will not be possible without the attainment of climate objectives.
The main strands of action are:
- Support for land use and planning that takes into account environmental and climate change objectives and restoration of natural habitats
- Carbon sequestration in the land use sector
- Avoiding afforestation of valuable land in the context of biodiversity and agriculture
- Conservation and restoration of the good status of soils
Greenhouse gas emissions from the transport sector account for 15% of Estonia’s total greenhouse gas emissions, making it the second most emitting sector after the energy sector. Of these emissions, 96% originate from road transport. The primary focus of the Transport and Mobility Development Plan 2021–2035, which was approved by the Government of the Republic at the end of 2021, is to reduce the environmental footprint of different means of transport and the transport system, with the aim of contributing to the achievement of climate objectives by 2050.
The main strands of action are:
- Promoting environmentally friendly public transport
- Designing a safe streetscape that supports the green transition
- Promoting environmentally friendly mobility and related infrastructure
- Designing an energy-efficient and low-emission vehicle fleet
- Developing innovative and environmentally friendly sea and air transport
In the development of a sustainable food system, the most important objective in the coming years is to ensure food security in a way that simultaneously reduces both the greenhouse gas (GHG) emissions and the environmental impact of agriculture in order to contribute to the attainment of the 2030 climate objectives and the targets of EU’s Farm to Fork Strategy. Given the current security and environmental conditions, it is essential to take into consideration both the economic, environmental and social dimensions and ensure our food security and viability of food production, not only in the short term but also in the long term.
The main strands of action are:
- Reducing the environmental impact of agriculture
- Reducing the use of antimicrobials and improving animal health and welfare
- Supporting the digital transition of the agri-food sector
- Supporting the investments of the food industry and farmers
- Raising the awareness of consumers and food business operators
In the field of green economy, the focus should be on securing the long-term competitiveness of the Estonian economy in the context of climate and environmental objectives and the resulting changes. While this poses a significant challenge for the Estonian business sector, it also presents a good opportunity to develop new business models. A sustainable business model provides a competitive edge. Nevertheless, change is not easy if there is a lack of necessary technology, sufficient demand or people with the right skills. In the coming years, it is crucial to emphasise the promotion of green investments, the integration of R&D&I with green policy objectives, to foster co-operation between researchers and companies and enhance the capacity to develop green technologies.
The main strands of action are:
- Linking R&D&I activities to green transition priorities and developing co-operation between research institutions and companies
- Education and skills that meet the needs of green transition
- Supporting companies in implementing the green transition
- Promoting locally developed green technologies
- Creating a supportive framework for green investments
- Securing the resources necessary for the green transition and potential prospects for ensuring security of supply
- Creating co-operation opportunities for Estonian companies and scaling activities
- Development of high-potential bioeconomy
In the coming decades, a transition from a largely linear economic model to a circular economy will be essential. According to the Estonian Circular Economy White Paper, the vision for the transition is as follows: ‘Estonia has a functioning circular production and consumption system and we are a smart country leading the circular economy.’ The main challenge in realising this vision is to ensure the integration of circular economy principles into all relevant policies and activities in the years ahead. The circular economy requires a cross-sectoral approach and the example of the state and local governments so that companies and citizens adopt it more widely.
The main strands of action are:
- Promoting national co-ordination of the circular economy
- Developing the adoption of circular solutions in companies
- Supporting new and innovative circular business models
- Organising waste management according to the objectives set at EU level
As a result of green policy objectives, countries are also facing new challenges. To achieve these objectives, it is necessary to determine how to operate in the public sector in an environmentally friendly manner and how to create favourable conditions for green transition in the private and third sectors. One of the first steps will be to reduce the environmental footprint of state agencies. To this end, each state agency will be required to measure its environmental and carbon footprint by the end of next year and develop an action plan on how to reduce it.
The main strands of action are:
- Reducing the environmental and carbon footprint of the public sector
- Increasing the share of strategic and collaborative public procurement
- Developing and managing the built-up real estate of the state in line with green transition objectives
- Consistency of national fiscal, monetary and tax policies with the objectives of the green transition
- Contributing to the achievement of green transition objectives through local government activities
- Ensuring the availability of data supporting environmentally conscious decision-making as both open data and in machine-processable form
- Creating a greater commonality between green and digital solutions
- Increasing the sustainability of the country’s ICT sector
- Developing Estonia’s positive image and credibility regarding green policy in international communication
- Consistency and measurability of the organisation and communication of green policy implementation
Last updated: 28.04.2026
