Estonia is divided into 15 counties (maakonnad) that form the first and primary level of administrative division in the country's two-tier system. Counties serve primarily as statistical and development planning units rather than self-governing entities with elected councils. Each county is administered by a governor (maavanem) appointed by the national government, who coordinates state services and implements national policies at the regional level. Counties oversee areas such as regional development planning, spatial planning coordination, and the delivery of certain state services including crisis management and civil defense. While they lack significant autonomous powers compared to municipalities at the second administrative level, counties play an important role in connecting national government functions with local needs and facilitating regional cooperation among municipalities within their boundaries.