Working groups
The private and non-profit sectors, alongside the public sector, including local governments, were actively involved mainly through working groups. These groups were tasked with providing cross-sectoral and cross-company advice for drafting the climate legislation.
The working group covered a number of key areas. Firstly, the legislation is expected to provide certainty regarding the volumes of resource use and valorisation. Secondly, there is a need to promote comprehensive spatial planning and multipurpose land use, along with ensuring clear and accessible data. It is considered crucial that climate and biodiversity issues are addressed in a comprehensive manner across sectors, that the legislation accounts for climate risks and that the implemented measures do not negatively impact biodiversity.
While representatives of companies involved in the EU Emissions Trading System (EU ETS) do not see the need for climate legislation to impose additional legally binding targets on the sector, other market participants expect the state to set a target for when and to what extent the energy sector must contribute to climate objectives. It was collectively agreed that the legislation could set binding and proportionate national targets for participants not covered by the EU ETS.
It is expected that the role of spatial design and buildings in the greenhouse gas (GHG) inventory will become clearer, supported by reliable data. In addition to reducing GHG emissions, the climate legislation should help guide the country’s living environment as a whole and deliver as many additional benefits as possible, beyond just improving the energy and resource efficiency of buildings. The goal is to create a higher quality living environment.
Global demand for food is growing, which calls for greater focus on management practices that increase carbon sequestration. Since reducing emissions from the food system is challenging due to the close link between production and biological processes, the legislation should not aim to reduce production volumes. Instead, solutions should focus on using resources more wisely within the system and, when designing measures, their combined effect should also be assessed.
Shipping is among the sectors with significant potential to both reduce greenhouse gas emissions and enhance competitiveness. It is essential to redirect the emissions trading system revenues received by the state from international shipping back into supporting ship conversions, port infrastructure development, and research and development. To adapt to changes in water levels and wind patterns caused by climate change, ports and shipping routes need to be dredged, and quays and related infrastructure need to be strengthened and rebuilt.
This is a horizontal area that should be addressed by every climate legislation working group. Its main contribution to reducing greenhouse gas emissions lies in the long-term preservation of material resource value. The legislation should outline a direction for sustained support for circular economy investments beyond the existing EU funding instruments and create opportunities for the introduction of new and secondary raw materials into the Estonian economy.
Greenhouse gas emissions from the transport sector primarily originate from road transport, with passenger cars being the largest contributors. Therefore, the targets established in the climate legislation and the measures designed to achieve them should focus predominantly on reducing emissions from road transport. However, the development of alternative modes of transport must not be overlooked. Additionally, the pursuit of climate targets is expected to be cost-effective, support the growth of domestic entrepreneurship and encourage the development and introduction of novel solutions.
It was collectively agreed that achieving climate policy objectives requires investment in technology development, energy efficiency and fuel switching, supported by long-term legal certainty and measures to stimulate such investments. Representatives of companies covered by the European Union Emissions Trading System (EU ETS) expect the state to avoid duplicating EU measures at the national level or establishing additional legally binding targets. Another perspective was that additional regulation might be necessary to limit the emissions of companies in the EU ETS, in order for the country to achieve its climate goals across all sectors.
Opinion Journey
Over the course of a month, the Estonian people had the opportunity to engage in Opinion Journey discussions about climate change mitigation and adaptation, as well as the upcoming Climate-Resilient Economy Act. More than 500 people took part in the discussions, resulting in nearly 300 policy proposals submitted to the Ministry of Climate.
Over the course of a month, the Estonian people had the opportunity to engage in Opinion Journey discussions about climate change mitigation and adaptation, as well as the upcoming Climate-Resilient Economy Act. As a result of the discussions, nearly 300 policy proposals were submitted to the Ministry of Climate.
The aim of the discussions was to gather suggestions on issues that are important and relevant to people’s daily lives that the upcoming Climate-Resilient Economy Act and green reform may impact or that are already necessary for making a difference. The discussions, held at times, locations and with participant groups of their choosing, provided everyone the opportunity to speak openly.
‘Thank you to all those who thought, discussed and shared their ideas with us. The 500 people who participated in the discussions clearly show that there is a strong desire to have a say in climate change issues and solutions. The proposals we received highlight that people care about a quality living environment, a well-functioning transport system and a well-preserved natural environment – all of these topics are also of key concern in the drafting of the Climate-Resilient Economy Act,’ commented Kristi Klaas, Deputy Secretary General for Green Reform at the Ministry of Climate.
The Ministry of Climate proposed nine topics for discussion, though other related issues were also welcomed. The most popular topics at the meetings included nature conservation and sustainable land use, climate-friendly construction and urban planning, adaptation to climate change, sustainable mobility and waste and circular economy. Discussion participants formulated specific proposals for both local governments and the state.
For example, on everyday issues, people expressed a desire for more convenient options for separate waste collection, clearer labelling and sorting instructions and an expansion of the packaging deposit system. Opinion Journey participants also want to see an increase in state support for renovating old houses and improving their energy efficiency, along with a simplification of the application process for the support.
Additionally, there were repeated calls to improve the quality of life and infrastructure in cities, including the development of non-motorised transport modes, the expansion of cycling opportunities and the overall improvement of traffic flow. Proposals were also made to reduce private car use and to enhance public transport services in rural areas.
Regarding the formulation of climate policy, several discussions emphasised the need to implement the policy recommendations of the Intergovernmental Panel on Climate Change (IPCC), such as phasing out the use of fossil fuels. It was also highlighted that the drafting of the climate legislation should account for potential political changes to ensure that the country’s long-term commitments and decisions regarding climate neutrality remain intact, regardless of government changes.
For economic policy-making, discussion participants recommended that the green reform should not hinder economic growth, while also acknowledging that not all activities should be based on growth. To promote entrepreneurship, they proposed that the state assist the private sector in making business models more environmentally friendly and allocate support to this end.
Approximately 300 proposals were received from the discussions. Some have already been taken into account in the drafting of the climate legislation, while others are more specific and require further analysis. These can be discussed and considered when other sectoral laws, regulations or development plans are amended as part of the green reform.
Community and social discussions were held in 14 counties, with the highest participation in Harju, Tartu and Hiiu counties. In total, meetings were held in 46 locations, of which 21 meetings were public and 25 were private.
In total, more than 500 people came together to discuss the future of climate and the environment. The average number of participants in the discussions was 10, with the largest meeting attracting 38 attendees. On average, the discussions lasted two hours, with the longest session lasting up to five hours.
The discussions, conducted in the form of an Opinion Journey, took place from 15 March to 15 April. To conclude the Opinion Journey, a final seminar for the discussion leaders was hosted on 8 May at the Ministry of Climate. The submitted proposals and opportunities for integrating them into future policy-making were discussed with the deputy secretary generals and other experts.
The goal of the Opinion Journey was to provide as many people as possible with an opportunity to voice their opinions and gather suggestions on issues that are important and relevant to their daily lives, which could be impacted by climate legislation. This process aimed to ensure that the new legislation would be as suitable and beneficial as possible for everyone.
- From 15 March to 15 April 2024, discussions, both major and minor, were held throughout Estonia in libraries and saunas, at family gatherings and wherever people chose to meet.
- Each discussion was led and facilitated by a discussion leader.
- The discussion leader found a suitable venue for the debate.
- The discussion leader invited participants – discussions could be either closed with personally invited participants or open to the public, in which case details about the public discussion could also be shared on the Opinion Journey website.
- The topic(s) for discussion were selected either under the guidance of the discussion leader or collaboratively by the group. Alternatively, the group could choose to discuss a topic of their own interest.
- A specific methodology and necessary supporting materials were prepared for the discussion.
- The ideas and suggestions generated during the joint discussion were compiled and submitted to the organisers via the Opinion Journey website.
Anyone could become a discussion leader for the Opinion Journey – everyone with an interest was welcome, including active community leaders and individuals from different areas of life, as well as those wanting to try their hand at leadership. This also offered the opportunity to join the community of discussion leaders for the Opinion Journey and contribute directly to the development of Estonia as a volunteer.
The Government Office, together with the team of Kasvulava OÜ, developed the methodology and guidance materials necessary for leading the discussions, which were made available to all discussion leaders. In addition, the Ministry of Climate organised four online training sessions for discussion leaders. These sessions allowed participants to familiarise themselves with the discussion methodology and refine their skills for effective discussion leadership. Training and further consultations were provided by Mai Timmi.
Climate lessons
During the first half of 2024, the employees of the Ministry of Climate visited schools across Estonia. Nearly 50 climate lessons were held, discussing climate change, its causes and impacts. In addition, young people were invited to share their views on what actions the Ministry should definitely take in the field of climate.
Last updated: 01.08.2025
