Estonia entered negotiations to procure Pegasus in 2018, and had made a $30 million down payment for the tool. Estonia hoped to use the tool against Russian phones (presumably for gathering intelligence). Israel initially approved the export of Pegasus to Estonia, but after a senior Russian defense official approached the Israeli defense agencies and revealed that Russia had learned of Estonia’s intentions to obtain Pegasus, Israel decided to disallow Estonia from using Pegasus against any Russian phone number (following a heated debate among Israeli officials) so as to avoid damaging Israeli relations with Russia.

Traded to government agencies in many countries but seems to also be approved by the israeli govt with clear distinction who can buy it and who can be targeted.