General information and governance
In Estonia, the updating of the legislative framework that regulates the participation in state-owned companies and foundations is guided by the OECD Guidelines on Corporate Governance of State-Owned Enterprises. The Guidelines are also taken account, in particular, in the State Assets Act which describes, inter alia, the general principles of the corporate governance policy and sets the rules for the governance of state assets.
In the processes of governing its participation in state-owned companies and in creating the legislation regulating it, the state is guided by the Principles of Stakeholding Policy, approved by the Government on February 27 2025.
As of December 2025, the state had shares in 24 operating companies of which 19 were entirely state-owned. In 4 companies, the state has the majority of shares and in one company has minority shares.
As of December 2025, the ministries and constitutional institutions perform real rights in 64 foundations, one of which are currently in the process of liquidation due to the reorganisation of activities.
Nomination committee
For nominating the members for the supervisory boards of companies with state participation, the Nomination committee was established by the Government Decision of January 26, 2017.
- The purpose of the Nomination committee is to make suggestions to the general meeting of the company i.e. to the administering minister concerning the selection and recalling of members of supervisory boards, the size of supervisory boards and their remuneration.
- By the Government's decision, starting from August 17, 2026, the private sector members of the Nomination Committee are Elise Nassar, Hele Hammer, Aavo Sõrmus, and Erkki Raasuke. Representing the public sector are the Secretary General of the Ministry of Finance and, as a rotating member, the Secretary General of the ministry governing the state's shareholding in the enterprise.
In total, the of supervisory boards of companies with state participation have approximately 110 members (as of december 2025).
As of the end of 2025, state-owned enterprises held assets exceeding 10.5 billion euros and employed approximately 11,725 people. The total turnover of state-owned enterprises in 2025 was approximately 3.4 billion euros.
| OPERATING COMPANIES | ||||
| No | Company | Share of state (as of 31.12.2025) | Purpose | Field of activity |
| Total number | 24 | |||
| Ministry of Climate | 11 | |||
| 1 | AS ALARA | 100% | public interest | Management of the former nuclear site in Paldiski and the Tammiku (Saku) radioactive waste facility. Reception and management of radioactive waste from other institutions and companies. |
| 2 | OÜ Eesti Keskkonnauuringute Keskus | 100% | public interest | Conducting environmental research. |
| 3 | AS Eesti Raudtee | 100% | public interest | Management of railway infrastructure. A strategically important infrastructure company that helps to ensure an essential service and therefore also carries an important role in national defence |
| 4 | Elering AS | 100% | public interest | Ensuring the security of energy supply for consumers |
| 5 | Lennuliiklusteeninduse AS | 100% | public interest | Serving the Tallinn Flight Information Region and the provision of air navigation services. A strategically important company that helps provide a service of general interest |
| 6 | OÜ Rail Baltic Estonia | 100% | public interest | Acquisition and management of shares in the joint venture RB Rail AS that is owned by the three Baltic countries. The goal of the venture is building a railway from Tallinn to the Lithuanian-Polish border |
| 7 | AS Saarte Liinid | 100% | public interest | Provision of a service of general interest and earning profit; management of regional infrastructure |
| 8 | AS Tallinna Lennujaam | 100% | public interest | Organisation of the work of airports (incl. regional airports) and passenger terminals |
| 9 | AS Tallinna Sadam | 67% | income earning | Activities connected to the work of harbours. A strategically important infrastructure company that has a pivotal role in the Estonian transport and transit cluster |
| 10 | AS Teede Tehnokeskus | 100% | public interest | Research and development activities related to construction and transport; provision of transport and construction services |
| 11 | AS Ökosil | 35% | public interest | Ohtlike ja radioaktiivsete jäätmete kogumine ja jäätmehoidlate töö korraldamine. |
| Ministry of Economic Affairs and Communications | 3 | |||
| 12 | AS Metrosert | 100% | public interest | Management of state’s measurement standards, verification and calibration of measuring instruments, marking of precious metal articles and expert assessment of precious stones |
| 13 | AS Eesti Varude Keskus | 100% | public interest | The constitution and management of the state’s srategic reserves |
| 14 | AS Kredex Krediidikindlustus | 66,7% | public interest | Insurance activities based on activity licences given to the company in the field of credit insurance and its sublasses |
| Ministry of Regional Affairs and Agriculture | 4 | |||
| 15 | AS Eesti Liinirongid | 100% | public interest | Organisation of railway transport, including passenger and freight transport; provision of accompanying services |
| 16 | AS Eesti Post | 100% | income earning | Provision of national and international postal services and ensuring the operation and development of the Estonian national postal network |
| 17 | AS Vireen | 100% | public interest | Providing the service of recycling animal by-products for agricultural producers and other food processing entities |
| 18 | Eesti Põllumajandusloomade Jõudluskontrolli AS | 93% | public interest | Conducting the performance check of farmed animals, assessment of the genetic value of farm animals, independent assessment of the quality of raw milk, issuing ear tags for farm animals |
| Ministry of Finance | 4 | |||
| 19 | Eesti Energia AS | 100% | public interest + income earning | Sales of electricity, thermal energy, network services and additional energy-related services in the Baltic Sea region |
| 20 | Riigi Kinnisvara AS | 100% | public interest + income earning | Provision of real estate services for the state as the sole proprietor of the company; advising the state on issues related to real estate |
| 21 | AS Eesti Loto | 100% | public interest + income earning | Organisation of lottery and the associated activities |
| 22 | AS Levira | 51% | public interest + income earning | Provision of digital services for the production of broadcasting programmes; broadcasting services |
| Ministry of Social Affairs | 1 | |||
| 23 | AS Hoolekandeteenused | 100% | public interest | Provision of different welfare, health care and other associated services, including welfare-related subcontracting activities |
| Ministry of Defence | 1 | |||
| 24 | Hexest Materials AS | 100% | public interest | Design and commissioning of an explosives plant |
At the end of 2025, the total assets of state foundations amounted to 2.11 billion euros, growing by 2.7% year-on-year. The revenues of state foundations have increased by 5.8% year-on-year, reaching 1.42 billion euros.
During the period of 2017–2025, the number of state foundations fluctuated from year to year, but by the end of 2025, there was overall one less foundation than in 2017. The number of employees followed an upward trend during the observed period, growing by a total of 11% and reaching 14,938 full-time employees by the end of 2025 (an annual growth of 1.9%).
| Foundation | Number of founders | Time of foundation | Goal according to articles of association | |
| Ministry of Education and Research | ||||
| 1 | Kutsekoda SA | 5 | 28.09.2001 | Developing the occupational qualifications system and ensuring its operation |
| 2 | SA Eesti Teadusagentuur | 1 | 28.05.1998 | Financing of research and development activities |
| 3 | SA Teaduskeskus Ahhaa | 3 | 12.03.2004 | Developing and managing the education and science centre |
| 4 | SA Euroopa Kool | 1 | 16.11.2018 | Management of the international school Tallinn European School |
| Ministry of Defence | ||||
| 5 | Riigikaitse Edendamise SA | 2 | 05.07.2004 | Supporting the improvement of the supply and training of IT-services for the Estonian Defence Forces and the Estonian Defence League |
| 6 | Sihtasutus CR14 | 1 | 07.02.2020 | Research and development activities related to the defence of cyber security |
| 7 | SA Rahvusvaheline Kaitseuuringute Keskus | 1 | 12.07.2006 | Development and maintenance of political expertise, raising public awareness on security, defence and foreign policy matters |
| Ministry of the Climate | ||||
| 8 | SA Keskkonnainvesteeringute Keskus | 1 | 02.06.2000 | Promotion of sustainable environment and raising awareness on environmental protection |
| Ministry of Culture | ||||
| 9 | Eesti Laulu- ja Tantsupeo SA | 1 | 25.03.1998 | Ensuring the sustainable and process-based development of the Estonian Song and Dance Celebrations as cyclically culminating cultural events |
| 10 | Spordikoolituse ja -Teabe SA | 1 | 12.03.2003 | Creating opportunities for supporting education and sports; developing supporting services for sports activities |
| 11 | SA Eesti Filmi Instituut | 1 | 28.08.1997 | Development and preservation of the Estonian national film culture and heritage |
| 12 | SA Eesti Draamateater | 1 | 03.10.2003 | Enriching the Estonian national culture; preservation and promotion of the Estonian language through professional performing arts |
| 13 | SA Kultuurileht | 1 | 30.03.1999 | Publishing and distribution of culture magazines and newspapers |
| 14 | SA Rakvere Teatrimaja | 2 | 09.11.2004 | Creating professional theatre productions of high artistic value; cultivating folk culture and social life |
| 15 | SA Tartu Jaani Kirik | 5 | 25.09.1998 | Funding the projects for the restoration, use and preservation of the Tartu St. John’s Church |
| 16 | SA Tehvandi Spordikeskus | 3 | 21.12.2004 | Development and management of the Olympic training centre and creating conditions for leisure activities |
| 17 | SA Ugala Teater | 1 | 23.01.2007 | Creating theatre productions of high artistic value. Enriching the Estonian national culture; preservation and promotion of the Estonian language |
| 18 | SA Sakala Teatrimaja | 3 | 25.02.1998 | Repairs and reconstruction of the building owned and used by the foundation; managing the facilities after renovation |
| 19 | SA Südalinna Teater | 1 | 30.11.2004 | Creating theatre productions of high artistic and technical value; organisation of other cultural events |
| 20 | SA Virumaa Muuseumid | 3 | 11.06.2002 | Restoration, preservation, collection and research of the values of cultural, natural and environmental protection |
| 21 | SA Jõulumäe Tervisespordikeskus | 1 | 28.04.2008 | Offering possibilities for nature education programmes, recreational and professional sports activities and for spending active holidays |
| 22 | Integratsiooni SA | 1 | 15.06.1998 | Activities targeted to the integration of the Estonian society and to immigration and emigration processes |
| 23 | SA Endla Teater | 3 | 01.03.2012 | Promotion of the Estonian national culture, preservation of the Estonian language and creating professional theatre productions of high artistic value |
| 24 | SA Eesti Noorsooteater | 1 | 30.11.2012 | Preservation and development of puppetry arts; promotion of the history of puppet theatre of Estonia and the world |
| 25 | SA Teater Vanemuine | 1 | 06.11.2012 | Promotion of the Estonian cultural values, creating theatre productions of high artistic value, organisation of performing arts events |
| 26 | SA Narva Muuseum | 2 | 20.12.2012 | Promotion of the historical, architectural, cultural and environmental heritage of the city of Narva and its surroundings; the preservation of the Narva fortress and its bastion fortifications |
| 27 | SA Eesti Vabaõhumuuseum | 1 | 27.12.2013 | Conservation and promotion of the cultural heritage of Estonia |
| 28 | SA Eesti Riiklik Sümfooniaorkester | 1 | 13.01.2014 | Preservation and development of the national music culture of Estonia, especially the culture of symphonic music |
| 29 | SA Eesti Tervishoiu Muuseum | 2 | 12.12.2013 | Promotion of anatomy and physiology related knowledge through captivating and educational exhibitions; preservation of the Estonian medical heritage |
| 30 | SA Eesti Kontsert | 1 | 03.01.2014 | Preservation and development of the Estonian music culture |
| 31 | SA Haapsalu ja Läänemaa Muuseumid | 2 | 05.07.2013 | Promotion of the cultural heritage of Lääne County, the city of Haapsalu and the history of Estonian railway and communications |
| 32 | SA Hiiumaa Muuseumid | 4 | 20.11.2014 | Collection, conservation and mediation of the cultural heritage of Hiiu County |
| 33 | SA Eesti Filharmoonia Kammerkoor | 1 | 30.12.2014 | Development, introduction, recording and promotion of the Estonian music culture |
| 34 | SA A.H.Tammsaare Muuseum Vargamäel | 2 | 29.01.2003 | Research and promotion of A.H.Tammsaare's creative heritage |
| 35 | SA Pärnu Muuseum | 2 | 20.12.2012 | Collection, conservation and mediation of the cultural heritage of Pärnu County |
| 36 | SA Eesti Spordi- ja Olümpiamuuseum | 2 | 04.05.2016 | Collection, conservation, research and mediation of the Estonian sports and Olympics culture |
| 37 | SA Eesti Kunstimuuseum | 1 | 13.06.2016 | Collection, conservation, research and mediation of the materials of Estonian and international professional arts |
| 38 | SA Eesti Meremuuseum | 1 | 28.02.2017 | Collection, conservation, research and mediation of the historical materials of the Estonian maritime sector |
| 39 | SA Saaremaa Muuseum | 2 | 18.08.2017 | Collection, conservation, research and mediation of the heritage materials of Saare County |
| 40 | SA Kunstihoone | 2 | 12.12.2017 | Developing creativity and initiative in the field of arts; organising exhibitions and sales exhibitions |
| 41 | SA Eesti Ajaloomuuseum | 1 | 10.01.2019 | Collection, conservation, research and mediation of theatre, music and film heritage |
| 42 | SA Kuressaare Teater | 2 | 11.04.2019 | Creating professional theatre productions; organisation of other performing arts events |
| 43 | Sa Tartu Kunstimuuseum | 2 | 29.01.2024 | Preserve and share Estonian art to inspire society and promote Tartu. |
| 44 | SA Eesti Tarbekunsti- ja Disainimuuseum | 1 | 12.03.2024 | To collect, preserve, study, and share Estonian applied art and design, supporting their development and professional interpretation |
| 45 | SA Eesti Arhitektuurimuuseum | 1 | 12.03.2024 | To collect, preserve, study, and share materials related to Estonian architecture, contributing to the field’s development and professional interpretation |
| 46 | SA Viljandi Muuseum | 1 | 17.02.2025 | Preserving and promoting the cultural heritage of Viljandi and Mulgimaa to strengthen culture, education, and tourism |
| Ministry of Economic Affairs and Communications | ||||
| 47 | Ettevõtluse ja Innovatsiooni SA | 1 | 25.08.2000 | Developing the Estonian entrepreneurship and regional policy |
| 48 | SA Tallinna Teaduspark Tehnopol | 3 | 30.09.2003 | Development and management of real estate objects for enhancing the competitiveness of knowledge-based companies |
| 49 | SA Tartu Teaduspark | 5 | 06.08.1997 | Implementing the research potential of the city of Tartu for developing science- and/or technology-based entrepreneurship |
| Ministry of Rural Affairs | ||||
| 50 | Maaelu Edendamise SA | 1 | 19.05.1997 | Supporting entrepreneurship in Estonian rural areas and increasing its competitiveness |
| 51 | SA Eesti Maaelumuuseumid | 1 | 11.09.2017 | Collection, conservation, research and mediation of the materials and history of Estonian agriculture |
| 52 | Pokumaa SA | 7 | 21.09.2000 | Building, development and management of the Pokuland theme park; launching and coordinating the activities in the theme park |
| 53 | SA Ida-Viru Investeeringute Agentuur | 5 | 24.05.2010 | Development of the entrepreneurship environment of lda- Viru County; active development of the industrial areas of Ida-Viru County in the local municipalities with industrial history and traditions |
| Ministry of Justice and Digital Affairs | ||||
| 54 | Riigiside SA | 1 | 18.12.2000 | Provision of cohesive public infocommunication and support services, including essential services, maritime communication services and continuous communication services |
| 55 | Eesti Interneti SA | 2 | 13.02.2009 | Management of the top-level country domain .ee |
| Ministry of Internal Affairs | ||||
| 56 | SA Kodanikuühiskonna Sihtkapital | 1 | 18.02.2008 | Development of civil society |
| Ministry of Foreign Affairs | ||||
| 57 | SA Eesti Rahvusvahelise Arengukoostöö Keskus | 1 | 05.04.2021 | ESTDEV organizes and coordinates Estonia's participation in international development cooperation and long-term humanitarian aid projects with the aim of increasing Estonia's contribution to global security and sustainable development. |
| Ministry of Social Affairs | ||||
| 58 | SA Haapsalu Neuroloogiline Rehabilitatsioonikeskus | 1 | 19.05.2003 | Provision of outpatient and inpatient specialised health care services and related health and social services |
| 59 | SA Põhja-Eesti Regionaalhaigla | 1 | 25.07.2001 | Provision of high-quality specialised medical care and ambulance services; development of study and research activities related to health care |
| 60 | SA Tartu Ülikooli Kliinikum | 3 | 22.12.1998 | Provision of high-quality medical and health care services; developing and approving new diagnostic and treatment methods |
| 61 | SA Viljandi Haigla | 1 | 21.01.2002 | Provision of high-quality specialised medical care and ambulance services; provision of rehabilitation and social services |
| 62 | SA Jõgeva Haigla | 1 | 19.03.2003 | Provision of high-quality specialised medical care, general care and rehabilitation services |
| Office of the President of the Republic of Estonia | ||||
| 63 | SA Vabariigi Presidendi Kultuurirahastu | 1 | 14.02.2000 | Awarding culture, social, educational and research awards and scholarships; funding of the related programmes |
| 64 | SA Eesti Koostöö Kogu | 1 | 10.04.2003 | Monitoring and analysing societal issues with long-term effects, developing suggestions and policy recommendations on such issues |
| Non-profit organization | Number of members | Additional Information | Membership fees for 2025 | |
| International organizations | ||||
| Ministry of Education and Research | ||||
| 1 | Biobanking and Biomolecular Resources Research Infrastructure (BBMRI ERIC) | 21 | VVk 25.04.2013 nr 195 | 22 514 € |
| 2 | Common Language Resources and Technology Infrastructure Consortium (CLARIN ERIC) | 25 | VVk 08.09.2011 nr 393 | 13 554 € |
| 3 | European Cooperation in Science and Technology (COST) Association | 38 | VVk 20.03.2014 nr 95 | - |
| 4 | European Spallation Source (ESS ERIC) | 17 | VVk 04.12.2014 nr 537 | - |
| Ministry of Justice | ||||
| 5 | Confederation of European Probation (CEP) | 40 | - | 3 008 € |
| 6 | European Business Registry Association (EBRA) | 34 | VVk 31.01.2019 nr 32 | 3 000 € |
| 7 | European Organisation Of Prison And Correctional Services (EuroPris) | 33 | - | 3 500 € |
| 8 | Europäische Rechtsakademie (ERA) | 48 | VVk 04.10.2018 nr 251 | - |
| Ministry of Defence | ||||
| 9 | European Cyber Security Organisation (ECSO) | 257 | VVk 14.07.2016 nr 253 | - |
| Ministry of the Environment / Land Board (directive of the minister of environment no 1-2/19/22 from 18.01.2019) | ||||
| 10 | European Spatial Data Research (EuroSDR) | 40 | VVk 09.11.2018 nr 289 | 4 000 € |
| Ministry of Economic Affairs and Communications | ||||
| 11 | Association of European Vehicle and Driver Registration Authorities (EReg) | 26 | VVk 15.09.2011 nr 395 | 4 065 € |
| Ministry of Internal Affairs | ||||
| 12 | Biometrics Institute | 240 | VVk 28.02.2019 nr 63 | 2 152 € |
| 13 | International Organization for Migration (IOM) | 181 | Rahvusvahelise Migratsiooniorganisatsiooniga ühinemise ning tema põhikirja ja põhikirja muutmise heakskiitmise seadus | 22 000 € |
| Ministry of Social Affairs | ||||
| 14 | European Social Survey (ESS ERIC) | 24 | VVk 31.01.2013 nr 39 | 21 855 € |
| Other non-profit organizations | ||||
| Ministry of Culture / Estonian National Museum (directive of the minister of culture no 103 from 29.05.2019) | ||||
| 15 | MTÜ ICOM Eesti Rahvuskomitee | 244 | VVk 25.04.2019 nr 112 | 891,00 € |
| Ministry of Rural Affairs | ||||
| 16 | MTÜ Eesti Maakarja Kasvatajate Selts | 146 | VVk 23.01.2015 nr 45 | 28,00 € |
| 17 | MTÜ Eesti Maaturism | 275 | VVk 23.01.2015 nr 45 | 100,00 € |
| Ministry of Rural Affairs / Estonian Plant Breeding Institute (directive of the minister of rural affairs no 39 from 25.02.2015) | ||||
| 18 | MTÜ Eesti Seemneliit | 44 | VVk 23.01.2015 nr 45 | 65,00 € |
| Ministry of Economic Affairs and Communications | ||||
| 19 | MTÜ Balti Teedeliit | 2 | VVk 02.10.2014 nr 445 | 20 000,00 € |
| 20 | MTÜ Eesti Standardikeskus | 3 | VVk 30.11.1999 nr 1283 | 800,00 € |
| 21 | MTÜ Maailma Energeetikanõukogu Eesti rahvuskomitee | 10 | VVk 08.04.2003 nr 241 | 7 126,36 € |
| 22 | MTÜ Nordic Institute for Interoperability Solutions | 2 | VVk 17.11.2016 nr 385 | 920 500,00 € |
| Regional public transport centrers | ||||
| Ministry of Economic Affairs and Communications | ||||
| 9 regional public transport centres | 72 | Directive of the Minister of Economic Affairs and Infrastructure no 1.1-1/17-271 from 22.12.2017 | - | |
| Land improvement associations | ||||
| 170 land improvement associations | - | |||
Last updated: 25.08.2026
