The Government of Estonia is formed by the Prime Minister of Estonia at recommendation of the President, and approved by the Riigikogu. The government, headed by the Prime Minister, represent the political leadership of the country and carry out domestic and foreign policy. Ministers head ministries and represent its interests in the government. Sometimes ministers with no associated ministry are appointed, known as ''ministers without portfolio''. Estonia has been ruled by coalition governments because no party has been able to obtain an absolute majority in the parliament.