Consensus-Building
#18Key Findings
Estonia falls into the lower-middle ranks (rank 18) with regard to consensus-building.
When academic studies are commissioned, they are largely intended to obtain an overview of problems or to support the government’s standpoints. Expert consultations such as roundtables and workshops are common, but rarely bring about significant policy changes.
Government guidelines regulate consultation with societal actors, with a focus on the policy-preparation phase. Employers groups have considerably more policy-formulation capacity than unions, and thus more influence. Capacities held by noneconomic interest groups vary. Environmental groups have traditionally focused on the local level, but this is changing.
Public institutions in Estonia provide extensive online resources, but websites are not fully harmonized, and some information is too complex for general use. There is growing concern that officials are classifying too many documents for internal use, limiting transparency.
When academic studies are commissioned, they are largely intended to obtain an overview of problems or to support the government’s standpoints. Expert consultations such as roundtables and workshops are common, but rarely bring about significant policy changes.
Government guidelines regulate consultation with societal actors, with a focus on the policy-preparation phase. Employers groups have considerably more policy-formulation capacity than unions, and thus more influence. Capacities held by noneconomic interest groups vary. Environmental groups have traditionally focused on the local level, but this is changing.
Public institutions in Estonia provide extensive online resources, but websites are not fully harmonized, and some information is too complex for general use. There is growing concern that officials are classifying too many documents for internal use, limiting transparency.
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To what extent is the government successful in effectively harnessing the best available scientific knowledge for policymaking purposes?
10
9
9
The government is able to harness the best available scientific knowledge for policymaking purposes.
8
7
6
7
6
In most cases, the government is able to harness the best available scientific knowledge for policymaking purposes.
5
4
3
4
3
Only rarely is the government able to harness the best available scientific knowledge for policymaking purposes.
2
1
1
The government is not able to harness the best available scientific knowledge for policymaking purposes.
The extent and impact of academic consultation are framed by the overall pattern of government decision-making. Limited strategic capacity at the center and a tendency to delegate policy-formulation initiatives to line ministries result in a fragmented landscape. The final reports of research projects are made publicly available on the websites of the governmental institutions that requested the study. However, most studies are commissioned solely to obtain overviews of problems or to provide evidence for the government’s standpoints.
Other forms of non-governmental expert consultations, such as roundtable discussions and workshops, are quite widespread. Experts and opinion leaders have been regularly engaged in preparing the long-term Estonia 2035 strategy, and the relevant website enables interested citizens to participate in and interact with developing the strategy. However, these events are often held on a pro forma basis, and do not lead to effective policy changes.
Since 2017, the Foresight Center (FC), a parliamentary think tank, has been active in conducting long-term social and economic analyses and drafting development scenarios. The center consults parliamentary committees but has only an implicit connection to the executive.
Recently, the initiative Science for Policy conducted a study among relevant stakeholders in Estonia to map the situation of the Estonian science-to-policy ecosystem. One of the conclusions was that while there is strong awareness of and readiness for an approach based on evidence in policymaking (EIPM) from the demand side, it is heavily dependent on ministries. Often, public administrators and politicians alike ignore EIPM as they try to enhance efficiency.
Furthermore, data literacy levels are low, and structures occasionally restrict knowledge transfer with universities and research institutions. There is also a lack of ex post assessments. Problems from the supply side include poor data availability, strict time frames, role conflicts and overworked staff. Additionally, there is no repository of existing knowledge and research.
However, overall, the introduction of science advisers in ministries has been an important step toward improving this situation. The GO Strategy Unit is clearly willing to promote EIPM. To achieve this, the scattered system of science advice needs to be consolidated, and incentives for academics to engage in policy advice must be created.
Citations:
OECD. 2023. “Building capacity for evidence-Informed policymaking in governance and public administration in a post-pandemic Europe. Inception Report Estonia.” https://etag.ee/en/bridging-science-and-policy-insights-from-the-estonian-research-council-seminar-in-brussels/
Other forms of non-governmental expert consultations, such as roundtable discussions and workshops, are quite widespread. Experts and opinion leaders have been regularly engaged in preparing the long-term Estonia 2035 strategy, and the relevant website enables interested citizens to participate in and interact with developing the strategy. However, these events are often held on a pro forma basis, and do not lead to effective policy changes.
Since 2017, the Foresight Center (FC), a parliamentary think tank, has been active in conducting long-term social and economic analyses and drafting development scenarios. The center consults parliamentary committees but has only an implicit connection to the executive.
Recently, the initiative Science for Policy conducted a study among relevant stakeholders in Estonia to map the situation of the Estonian science-to-policy ecosystem. One of the conclusions was that while there is strong awareness of and readiness for an approach based on evidence in policymaking (EIPM) from the demand side, it is heavily dependent on ministries. Often, public administrators and politicians alike ignore EIPM as they try to enhance efficiency.
Furthermore, data literacy levels are low, and structures occasionally restrict knowledge transfer with universities and research institutions. There is also a lack of ex post assessments. Problems from the supply side include poor data availability, strict time frames, role conflicts and overworked staff. Additionally, there is no repository of existing knowledge and research.
However, overall, the introduction of science advisers in ministries has been an important step toward improving this situation. The GO Strategy Unit is clearly willing to promote EIPM. To achieve this, the scattered system of science advice needs to be consolidated, and incentives for academics to engage in policy advice must be created.
Citations:
OECD. 2023. “Building capacity for evidence-Informed policymaking in governance and public administration in a post-pandemic Europe. Inception Report Estonia.” https://etag.ee/en/bridging-science-and-policy-insights-from-the-estonian-research-council-seminar-in-brussels/
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To what extent does the government facilitate the participation of trade unions and business organizations in policymaking?
10
9
9
The government is able to effectively involve trade unions and business organizations in policy development.
8
7
6
7
6
Most of the time, the government is able to effectively involve trade unions and business organizations in policy development.
5
4
3
4
3
The government is rarely able to effectively involve trade unions and business organizations in policy development.
2
1
1
The government is not able to effectively involve trade unions and business organizations in policy development.
Consultations with societal actors are regulated by government guidelines outlined in the Good Practice of Involvement (GPI), in place since 2012. Although not legally binding, the GPI prescribes detailed procedures for engaging social stakeholders in the policymaking process. All ministries employ an engagement coordinator to assist interested citizens and advocacy groups. The main focus is on consultations during the preparatory phase, when a broad range of societal actors is typically involved. However, policymaking does not always entirely adhere to GPI principles. Additionally, engagement practices have not yet been fully incorporated into the policy implementation and policy evaluation phases.
The Estonian Trade Union Confederation’s (ETUC) policy-formulation capacity is relatively weak, due both to low membership rates and fragmentation within the system (Kallaste 2023). Trade unions’ ties with political parties were stronger during the early years of Estonian independence; recently, these links have diminished. However, in 2022, the general secretary of ETUC entered the government as a minister. The unions appear to be more involved when the Social Democrats are in power, although this involvement is more informal than institutional.
Social partners are formal partners of the government in tripartite social insurance funds, which constitute the main structural form of dialogue. Beyond this, the primary focus is on determining the annual national minimum wage. The shortage of teachers has heightened the salience of the Estonian Educational Personnel Union, which has been intensively demanding an increase in teachers’ statutory salaries (a promise yet to be fulfilled by the government). This unmet demand led to a teachers’ strike in January 2024 and increased public awareness of unions.
The Estonian Employers Confederation (EEC) has been active for a longer period, indicating both its greater legitimacy among previous governments and a better position in power relations. The number of policy proposals developed by the EEC and its analytical capacities have significantly increased in recent years. For example, the EEC was behind the Governance Reform Radar initiative, and is closely linked to the State Reform Foundation, which has produced a detailed list of reform proposals. However, the State Reform Foundation has been dormant since 2019.
Citations:
Epp, Kallaste. 2023. “Trade Unions in Estonia: Less than Meets the Eye.” In Trade Unions in the European Union, eds. Kurt Vandaele, Torsten Müller, and Jeremy Waddington. Brussels, Berlin, Bern, New York, Oxford, Warsaw, Vienna: Peter Lang, 359−386.
The Estonian Trade Union Confederation’s (ETUC) policy-formulation capacity is relatively weak, due both to low membership rates and fragmentation within the system (Kallaste 2023). Trade unions’ ties with political parties were stronger during the early years of Estonian independence; recently, these links have diminished. However, in 2022, the general secretary of ETUC entered the government as a minister. The unions appear to be more involved when the Social Democrats are in power, although this involvement is more informal than institutional.
Social partners are formal partners of the government in tripartite social insurance funds, which constitute the main structural form of dialogue. Beyond this, the primary focus is on determining the annual national minimum wage. The shortage of teachers has heightened the salience of the Estonian Educational Personnel Union, which has been intensively demanding an increase in teachers’ statutory salaries (a promise yet to be fulfilled by the government). This unmet demand led to a teachers’ strike in January 2024 and increased public awareness of unions.
The Estonian Employers Confederation (EEC) has been active for a longer period, indicating both its greater legitimacy among previous governments and a better position in power relations. The number of policy proposals developed by the EEC and its analytical capacities have significantly increased in recent years. For example, the EEC was behind the Governance Reform Radar initiative, and is closely linked to the State Reform Foundation, which has produced a detailed list of reform proposals. However, the State Reform Foundation has been dormant since 2019.
Citations:
Epp, Kallaste. 2023. “Trade Unions in Estonia: Less than Meets the Eye.” In Trade Unions in the European Union, eds. Kurt Vandaele, Torsten Müller, and Jeremy Waddington. Brussels, Berlin, Bern, New York, Oxford, Warsaw, Vienna: Peter Lang, 359−386.
To what extent does the government facilitate the participation of leading social welfare CSOs in policymaking?
10
9
9
The government is able to effectively involve leading social welfare CSOs in policy development.
8
7
6
7
6
Most of the time, the government is able to effectively involve leading social welfare CSOs in policy development.
5
4
3
4
3
The government is rarely able to effectively involve leading social welfare CSOs in policy development.
2
1
1
The government is not able to effectively involve leading social welfare CSOs in policy development.
The policy-formulation capacity of noneconomic interest groups varies across fields of interest and with the scope of the intended impact. Generally, the capacities of social welfare civil society organizations (CSOs) are even more limited than those of unions or employer associations. Most CSOs are small and possess limited financial and human resources. However, in the realm of social welfare, the situation has improved, and a more genuine involvement of welfare experts has been taking root.
In 2023, the Welfare Development Plan 2016 – 2023 (WDP) was approved by the government. This process started in 2021 and involved many stakeholders. Consultations and discussions took place in bodies related to the well-being performance area of the state budget and the steering committee of the previous Welfare Development Plan during the drafting process. A steering committee was convened, and 11 thematic working groups were set up under the leadership of officials from the Ministry of Social Affairs.
Broad-based discussions took place in the well-being area of the 2021 Opinion Festival, a wider public engagement event very popular in Estonia. Discussions on the objectives of the development plan occurred throughout the event. WDP 2016 – 2023 is one of the sub-programs of Estonia 2035, the Estonian government’s long-term strategic action plan.
In 2023, the Welfare Development Plan 2016 – 2023 (WDP) was approved by the government. This process started in 2021 and involved many stakeholders. Consultations and discussions took place in bodies related to the well-being performance area of the state budget and the steering committee of the previous Welfare Development Plan during the drafting process. A steering committee was convened, and 11 thematic working groups were set up under the leadership of officials from the Ministry of Social Affairs.
Broad-based discussions took place in the well-being area of the 2021 Opinion Festival, a wider public engagement event very popular in Estonia. Discussions on the objectives of the development plan occurred throughout the event. WDP 2016 – 2023 is one of the sub-programs of Estonia 2035, the Estonian government’s long-term strategic action plan.
To what extent does the government facilitate the participation of leading environmental CSOs in policymaking?
10
9
9
The government is able to effectively involve leading environmental CSOs in policy development.
8
7
6
7
6
Most of the time, the government is able to effectively involve leading environmental CSOs in policy development.
5
4
3
4
3
The government is rarely able to effectively involve leading environmental CSOs in policy development.
2
1
1
The government is not able to effectively involve leading environmental CSOs in policy development.
Environmental groups have traditionally operated on a local level, but their actions are becoming increasingly visible and coordinated. One organization that supports environmental participation in policymaking is SEI Tallinn, an Estonian branch of the Stockholm Environmental Institute. SEI Tallinn aims to bridge science, policy and practice, focusing on environmental and development challenges. In 2022, SEI Tallinn founded the Estonian Association for Environmental Management and began to develop new partnerships at both the EU level, such as the European Energy Research Alliance, and regionally (SEI 2023). As of January 2023, when the annual report was compiled, there were 26 projects in process.
Citations:
SEI Tallinn. 2023. “Annual Report.” 2022. https://www.sei.org/wp-content/uploads/2023/06/seit-annual-report-2022-eng.pdf
Citations:
SEI Tallinn. 2023. “Annual Report.” 2022. https://www.sei.org/wp-content/uploads/2023/06/seit-annual-report-2022-eng.pdf
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To what extent does the government publish data and information that empowers citizens to hold the government accountable?
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The government publishes data and information in a manner that empowers citizens to hold the government accountable.
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Most of the time, the government publishes data and information in a manner that empowers citizens to hold the government accountable.
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The government rarely publishes data and information in a manner that strengthens citizens to hold the government accountable.
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1
The government does not publish data and information in a manner that strengthens citizens’ capacity to hold the government accountable.
In line with the overall e-government approach, all public institutions maintain extensive web resources for public use. Attempts to harmonize the website architecture of ministries and agencies have only partially succeeded. Consequently, the user friendliness of web resources varies across institutions. While the available information is generally extensive and up to date, it is often too detailed and sophisticated for use by ordinary citizens. Retrospective data, including statistics and legal norms, are not always available, and URLs frequently do not work. Additionally, there is growing concern that government officials increasingly classify documents for official use only, often without sound reason.
The Open, Useful and Reusable Data Index (OUR; OECD 2020), which benchmarks the design and implementation of open data policies at the central level and emphasizes the sustained political and policy relevance of this area for OECD members, indicates that there are indeed areas of open government where there is room for improvement. Estonia ranked 27th out of 32 countries based on data availability, accessibility and government support for data reuse.
The open data portal is the official platform in Estonia on which users can add their organizations and metadata. While the government has increased stakeholder engagement in order to provide information on the open data policy – mainly through the central platform’s GitHub account – few high-value datasets are available through the portal as compared to similar services in other OECD countries. The country receives better scores for data accessibility than for data availability, but the main challenge for the Estonian government is to enhance support for the reuse of open data. Estonia remains one of the lowest-performing OECD countries with regard to organizing data promotion events and partnerships, increasing open data literacy within the government, and monitoring the impact of open data.
Recently, Estonia’s Digital Agenda 2030 (Ministry of Economic Affairs and Communication, 2023) was developed to outline the progress toward meeting digital targets set in Estonia 2035. One of the key areas in the Digital Agenda is the advancement of digital government, meaning the use of digital solutions in the public sector. This special agenda is essential because no other development plans encompass the overall development of digital government. The public sector is intended to lead and set the direction for the development of the Estonian digital society. This agenda aims to take significant steps forward in the development of digital government services, and in ensuring the sustainability of the established solutions. However, the approach is relatively optimistic about digital advancements, giving limited attention to issues such as regional disparities or user friendliness, or strategies to address these concerns.
Citations:
Ministry of Economic Affairs and Communication. 2023. https://www.mkm.ee/media/6970/download
OECD. 2020. “Useful and Re-usable Data (OURdata) Index: 2019.” OECD Policy Papers on Public Governance. https://www.oecd.org/gov/digital-government/policy-paper-ourdata-index-2019.htm
The Open, Useful and Reusable Data Index (OUR; OECD 2020), which benchmarks the design and implementation of open data policies at the central level and emphasizes the sustained political and policy relevance of this area for OECD members, indicates that there are indeed areas of open government where there is room for improvement. Estonia ranked 27th out of 32 countries based on data availability, accessibility and government support for data reuse.
The open data portal is the official platform in Estonia on which users can add their organizations and metadata. While the government has increased stakeholder engagement in order to provide information on the open data policy – mainly through the central platform’s GitHub account – few high-value datasets are available through the portal as compared to similar services in other OECD countries. The country receives better scores for data accessibility than for data availability, but the main challenge for the Estonian government is to enhance support for the reuse of open data. Estonia remains one of the lowest-performing OECD countries with regard to organizing data promotion events and partnerships, increasing open data literacy within the government, and monitoring the impact of open data.
Recently, Estonia’s Digital Agenda 2030 (Ministry of Economic Affairs and Communication, 2023) was developed to outline the progress toward meeting digital targets set in Estonia 2035. One of the key areas in the Digital Agenda is the advancement of digital government, meaning the use of digital solutions in the public sector. This special agenda is essential because no other development plans encompass the overall development of digital government. The public sector is intended to lead and set the direction for the development of the Estonian digital society. This agenda aims to take significant steps forward in the development of digital government services, and in ensuring the sustainability of the established solutions. However, the approach is relatively optimistic about digital advancements, giving limited attention to issues such as regional disparities or user friendliness, or strategies to address these concerns.
Citations:
Ministry of Economic Affairs and Communication. 2023. https://www.mkm.ee/media/6970/download
OECD. 2020. “Useful and Re-usable Data (OURdata) Index: 2019.” OECD Policy Papers on Public Governance. https://www.oecd.org/gov/digital-government/policy-paper-ourdata-index-2019.htm