Estonia to revise gambling act, but no major restrictions planned

Estonia's Ministry of Finance is preparing amendments to the country's 2008 Gambling Act, with a focus on refining regulations rather than tightening restrictions. The draft amendments are expected by mid-2025, with implementation slated for early 2026.

The revisions will address online gaming regulations, self-exclusion mechanisms, gambling taxation, and advertising guidelines, but will not include changes to loot boxes or virtual currency purchases in video games.

Estonia increased several gambling taxes in 2024, with remote gambling, Toto, and tournament tax rising from 5% to 6%, and the lottery tax on ticket sales increasing from 18% to 22%. While no further tax hikes are planned for 2025, the Ministry will monitor the impact of these changes.

Gambling tax revenues remain a primary funding source for the Estonian Cultural Endowment and sports initiatives.

Officials have noted a rise in "pre-addiction phases of gambling," particularly linked to economic hardships, said Committee Chairman Jaak Aab. In response, the Ministry will review in-play betting mechanics and gambling incentives to mitigate excessive gambling risks.

Children's exposure to gambling remains a concern, despite Estonia’s strict +21 gambling age restriction. Rainer Osanik, head of financial policies and intelligence at the Ministry of Finance, said: “By law, children should be completely excluded from gambling, but they are alongside parents and acquaintances who play games at home or purchase lottery tickets, and such activities are becoming everyday occurrences.”

Loot boxes and virtual currency purchases, often criticized for resembling gambling mechanisms, will not be regulated under the updated legislation.

Efforts to impose stricter restrictions on gambling advertisements have faced political opposition, with no parliamentary consensus on banning ads on TV, radio, and online media. Instead, the Ministry will focus on clarifying existing rules, particularly in public spaces, and banning misleading promotions, such as advertisements suggesting gambling as a financial solution or promising unrealistic winnings.

Estonia's national self-exclusion system, HAMPI, may be expanded to allow family members to request exclusions for relatives exhibiting problematic gambling behavior. Additionally, courts could be granted authority to mandate self-exclusion orders in severe cases. However, legal complexities could hinder effective implementation.

 
The Ministry aims to strike a balance between consumer protections and maintaining a competitive gambling market. Operators may need to adjust their advertising strategies to align with new responsible gambling guidelines, while legal challenges may arise over self-exclusion mandates.