Eelnõude infosüsteem (EIS)

Draft Legislation Pipeline (EIS)

The record of a draft law before it reaches the Riigikogu: what is in ministry coordination or public consultation right now, and — for any draft, current or years past — the coordination round's actual files: kooskõlastuskirjad, the märkuste/kooskõlastustabel (each objection and the ministry's answer), and public arvamused. Once a bill is in parliament, riigikogu-open-data covers the parliamentary stage; the ministry stage stays here.

Access

• Current listings: https://eelnoud.valitsus.ee/main/mount/share/home (also served at /main)
• One draft's toimik (its whole file): https://eelnoud.valitsus.ee/main/mount/docList/<toimikUuid> — a stable, direct-GET URL
• Public server-rendered HTML, no login. Send a normal browser User-Agent.
• Legacy OSALE URLs redirect here.

Retrieve: current listings

eisDrafts({stage}) parses the three tables by their headings:

The stage is the heading, not a column, and each row carries its own. open: true is computed from the row's Tähtaeg not having passed AND its Staatus still being Teostamisel — that is a live deadline a citizen can act on, and it is the thing worth surfacing. Lõppenud means the window has closed.

EIS-number prefixes name the ministry and the module resolves them: JDM Justiits- ja Digiministeerium, REM Regionaal- ja Põllumajandusministeerium, SIM Siseministeerium, MKM Majandus- ja Kommunikatsiooniministeerium, RAM Rahandusministeerium, VÄM Välisministeerium, SOM Sotsiaalministeerium, KLIM Kliimaministeerium, KAM Kaitseministeerium, HTM Haridus- ja Teadusministeerium, KUM Kultuuriministeerium.

Retrieve: one draft's toimik and its files

The listing's row links are JavaScript, so the toimik UUID comes from outside EIS:

1. Riigi Teataja draft-acts API (any draft, verified back to 2017): the EIS number IS the RT menetluseId. POST https://www.riigiteataja.ee/public-api/api/v1/avalik/eelnou with {"menetluseId":"SOM/24-0227"} → each stage's menetlusTeave is a docList/<uuid> URL. No EIS number? Search by title first — see riigiteataja-draft-acts.
2. Riigikogu volume (bills that reached parliament): the draft detail's texts[] holds a file titled EIS teade, named [EIS]_…_SOM-24-0227_….txt — the filename carries the EIS number (- for /), and the .txt itself contains the docList link.

For a draft neither source resolves, the fallback is the drafting ministry's own document register (ministry-document-registries): search the agency named by the EIS-number prefix by title= keyword.

eisDossier(uuid) fetches that page — ~380 KB of HTML, never through a raw tool response — and returns:

• the Kooskõlastused rounds: each coordinating ministry with its Tähtaeg, Vastatud and verdict (Kooskõlastatud märkustega, Kooskõlastatud …);
• every document with its registration number, date and file list. The ministry response documents are the kooskõlastuskirjad; the VV-submission document's files include the seletuskiri annex …KOOSKÕLASTUSTABEL….pdf (the märkuste tabel);
• Avalikud arvamused — the public comments from interest groups and law firms, which hang off the activity rather than a registered document and so are absent from the page's own flat "all documents" block.

eisFileText(uuid, name) then returns one file as text, picking it by name from that list.

Why the download is a module function and not a script here

Getting a file out of EIS is three requests sharing one session: GET the toimik and keep its JSESSIONID; POST the file's widget path and index to be handed a fresh URL; GET that URL with the same cookie. Two strings have to be copied verbatim out of an escaped onclick handler, and the third URL is single-use — a second GET answers HTTP 200 with 380 KB of toimik HTML and no content-disposition, which to anything checking only the status code is indistinguishable from the file. The module does all of it in one call, checks content-disposition before treating bytes as a document, skips the server's N;PDF re-renderings, and hands the result to fileText(), so an .asice comes back with the documents inside already read.

Worked example (verified 2026-08-02): SOM/24-0227 (Magustatud joogi maksu seadus, later 418 SE) → toimik 50dc6369-567c-4827-aff7-7726e960ef75; 4 coordination rounds — MKM, Justiitsministeerium, Regionaal- ja Põllumajandusministeerium, Rahandusministeerium, all Kooskõlastatud märkustega, 28.03–01.04.2024 — 9 documents and 45 files. eisFileText(uuid, "KOOSKÕLASTUSTABEL") returns 131,294 characters, each objection next to the ministry's answer. The 2017 toimik RAM/17-0515 resolves the same way — depth reaches at least 2017.

Return

• Listings: preserve title, EIS number, algataja viide, algatatud date, tähtaeg, staatus, liik, the listing heading, source URL and retrieval time. Say which stage a row is in.
• Toimik: preserve the EIS number, the docList URL (cite it — it is a page a citizen can open), each coordination row's ministry/dates/verdict as printed, and the exact filenames of files you quote from.
• Never present an EIS record as enacted law — for text in force use legal-acts-data.

Limits

• The listing pages cannot reach the toimikud. Row links are ev() JavaScript and Täpne otsing is an Aranea stateful form that cannot be driven over HTTP — toimik UUIDs come only via Riigi Teataja or a Riigikogu volume, so a draft too fresh or too obscure for either has no route. The listing itself retains completed rows for a while but is not an archive and cannot be paged back.
• The three RSS feeds are refused — publicConsult.rss, review.rss and submission.rss under /main/mount/rss/home/, each HTTP 403 You don't have permission to access this resource. (all three re-checked 2026-08-02). Cloudflare fronts the host but this is the origin refusing, not a challenge to solve: do not use the feeds and do not try to work around it.

claim The three RSS feeds are refused
GET https://eelnoud.valitsus.ee/main/mount/rss/home/publicConsult.rss
expect-status 403
expect /You don't have permission to access this resource/
# The control is EIS's own front page. If the site as a whole went behind a
# challenge every path would answer 403, this claim would keep "holding", and
# the much larger finding — EIS is unreachable — would be the one nothing said.
control GET https://eelnoud.valitsus.ee/main

• We cannot get a file out of a toimik with plain requests. The download is the three requests above sharing one session, with two strings copied verbatim out of the page's own JavaScript and a handover URL that works once, and the kooskõlastustabel is usually a container that has to be unpacked — so without a runtime, read and cite the docList page and link the file rather than quoting from it.
• Files with access restrictions (AK) can be withheld even when the row is public; anonymous sessions see only public material.
• Sätla does not replace this yet, and will not backfill it. The riigi koosloome keskkond created by 879 SE (passed 2026-07-03) is a phased, opt-in rollout: drafts begun in Sätla are exported to continue in EIS, first-stage public consultation still happens in EIS, and permanent retention under RTS § 12¹ lg 8 covers only acts processed in Sätla. EIS stays live and remains the sole home of historical coordination material. Re-check when Sätla's later stages land.

Verify

• Listings: require HTTP 200 text/html containing all three listing headings and at least one row whose EIS number matches [A-ZÕÄÖÜ]{2,4}/\d{2}-\d{4}. When claiming a deadline is open, require the row's own Tähtaeg and Staatus in the fetched HTML.
• Toimik: require the page <title> to name the draft you asked about; a login prompt or an empty shell is not the toimik.
• Downloads: require content-disposition (or the file's magic bytes) on the step-3 response before quoting from it — an HTTP 200 without it is the toimik HTML, not the document. State file contents only from text you actually extracted and printed.
• Reject a Cloudflare challenge page anywhere in the flow — it is a block, not data.

The worked example above is also the live acceptance check, run weekly by scripts/check-sources.mjs (issue #82). It walks the whole three-request download, because that is where the silent failure lives:

GET https://eelnoud.valitsus.ee/main/mount/docList/50dc6369-567c-4827-aff7-7726e960ef75
expect /<title>[^<]*Magustatud joogi maksu seadus/
# Only a plain numeric <PARAM>: a `N;PDF` index would need URL-encoding and
# tests the server's PDF renderer rather than the download flow.
capture widget,param /downloadFile\(\\'download\\',\\'([^'\\]+\.documentList\.[^'\\]+)\\',\s*\\'(\d+)\\'/
POST https://eelnoud.valitsus.ee/main?araTransactionId=override&araServiceActionPath={{widget}}&araServiceActionHandler=download&araServiceActionParameter={{param}}
expect /^\s*https:\/\/eelnoud\.valitsus\.ee\S+\s*$/
capture once /(https:\/\/\S+)/
GET {{once}}
expect-header content-disposition
# The step-3 URL is single-use: a second GET answers 200 with 380 KB of toimik
# HTML and no content-disposition. To anything that only checks the status code
# that is indistinguishable from the file, which is why it is asserted here.
counter GET {{once}}

Module API

eisDrafts({stage}) -> {source, page, totals, rows, note} eisDossier(uuid) -> {source, page, uuid, title, totals, rounds, documents, note} eisFileText(uuid, name) -> {source, page, name, format, chars, text, note}