The Ministry of Finance of Estonia intends to update articles of the Gambling Act of 2008 but has expressed that amendments will not “lead to a tightening of gambling laws.”
The update was provided by Rainer Osanik, Head of Financial Policies and Intelligence at the Ministry of Finance, who is responsible for drafting a decree of amendments related to Estonia’s Gambling Act.
Addressing the Economic Affairs Committee of the Riigikogu (Parliament), Osanik outlined key policy areas and conditions that require revisions.
The Committee hears that Osanik will provide a review of feedback on gambling tax changes enacted in 2024 to update Estonia’s gambling tax framework.
Changes applied, saw Remote Gambling Tax on games of chance increased from 5% to 6% of the amount received from bets (less winnings), along with the Game of Chance Tournament Tax (for both tournament and round game formats), which also rose from 5% to 6% of participation fees. Similarly, the Toto Tax increased from 5% to 6%, and the Lottery Tax on ticket sales rose from 18% to 22%.
As stands, the Ministry of Finance has no intentions to implement further tax amendments in 2025, as it continues to monitor the last year’s changes to maintain the right balance in the taxation of gambling disciplines.
However, in the coming months the Ministry must review feedback as the framework of gambling taxes remains the primary funding source for the Estonian Cultural Endowment and sports initiatives.
Government wants answers on risky behaviours
Committee Chairman Jaak Aab questioned Osanik on research indicating an “increase in pre-addiction phases of gambling.” Osanik responded that he viewed the trend as reflecting “economic factors coming into play, as hardships or instability may push more adults towards gambling to improve their financial situation.”
As such, a review of the design of online games and systems is planned, with the Committee proposing new preventive measures regarding in-play mechanics and gambling incentives.
Further concerns were raised about the growing exposure of children to gambling behaviours, despite Estonia maintaining a +21 age restriction for gambling.
Osanik cited various contributing factors to these concerns, stating: “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.”
Mirroring concerns in other European nations, Estonia has highlighted issues regarding children engaging in virtual currency purchases and exchanges via video game loot boxes, which are considered to resemble “gambling mechanisms.”
However, despite concerns over loot boxes, Osanik clarified that his brief does not include any assignment to regulate this issue in Estonia. He added: “On a global scale, virtual, so-called play money, which is used when playing computer games, is also an issue.”
No consensus on advertising reforms
The Committee pressed Osanik on whether the Ministry of Finance would support a review of Estonia’s Advertising Act to incorporate new gambling-related amendments.
Although gambling advertising is widely recognised as an area in need of significant reform, Osanik noted that previous attempts to impose restrictions on gambling advertisements on TV, radio, and online media were rejected due to opposition.
Due to the Riigikogu’s inability to agree on amendments to the Advertising Act, Osanik stated that revisions to the Gambling Act would be limited to clarifying rules on gambling advertising in public spaces and prohibiting misleading promotions, such as claims that gambling is a means to get rich or solve financial problems.
The Committee was informed that gambling advertising remains a legal grey area, allowing operators to sponsor sports events and teams without explicitly mentioning gambling while still promoting their brands.
Parameters of Self-Exclusion
New initiatives from the Ministry of Finance support expanding the parameters of ‘HAMPI’, Estonia’s gambling self-exclusion scheme, to allow family members to request restrictions on individuals.
At present, only individuals can voluntarily add themselves to the ‘HAMPI’ gambling restriction scheme. Discussions are ongoing about allowing courts to mandate inclusion in the list; however, Osanik expressed concerns over legal procedures and accessibility. The primary issue is that individuals may not take the initiative to go through a court process, which could undermine the effectiveness of self-exclusion.
The Committee expects to publish its decree of Gambling Act amendments by April-June, allowing ministers to provide feedback. “The expected date of entry into force of the legislation is the first half of 2026.”
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