Questions and answers on gambling system reform 

The premise under the Government Programme is to reform the gambling system by opening it up to competition by means of a licensing approach. Moreover, under the Government Programme the monopoly activities remaining with Veikkaus and those in the competitive market will be separated into different companies within the same group. Hence, the terms of reference for the project did not include assessing the alternative of retaining the monopoly system. 

As laid out in the Government Programme, the aim of the reform is to prevent and reduce gambling-related harm and to increase the channelling of demand to a regulated and controlled gambling system. Currently, numerous companies operating outside the Finnish monopoly system offer online gambling games to Mainland Finland that are not subject to regulation and supervision, and whose profits are not subject to Finnish taxation. 

The new gambling system will be introduced in stages. Gambling companies may submit applications for licences to run gambling games as from 1 March 2026. Licensed gambling services may be launched as from 1 July 2027. The current Veikkaus Oy will maintain its monopoly until that time. 

Gambling software licence applications may be submitted as from 1 July 2027. The obligation to use only the software provided by the gambling software licence holder in running gambling games will apply as from 1 July 2028. The National Police Board will act as the competent licensing authority until 30 June 2027. The new Finnish Supervisory Agency will take over as licensing and supervisory authority on 1 July 2027. 

Veikkaus may obtain an exclusive licence for money lotteries, pools, physical slot machines and physical casino games. In the competitive market, gambling licences may be granted for betting and certain types of online gambling games. Betting will encompass on-track horse betting and virtual betting. Online gambling games in the competitive market will encompass online casino games, online money bingo and online slot machines. 

According to the Government Programme, the aim of the reform is to prevent and reduce economic, social and health-related harm resulting from gambling and to improve the channelling rate of the gambling system. The link between preventing gambling-related harm and raising the channelling rate is not unambiguous. 
Channelling refers to steering gambling to a regulated and controlled supply of games. The channelling rate describes the proportion of gambling stakes placed with regulated providers. 

The channelling rate is impacted by the extent to which gambling companies seek to enter the gambling market. A rising channelling rate may have a positive effect from the perspective of harm prevention, when the supply of gambling games within the gambling system poses materially lower risk of harm compared to other online gambling, and when the volume of gambling remains moderate.

The crucial issue in terms of gambling-related harm is the availability of gambling games, i.e. how readily gambling games can be accessed by people, the nature of the games and how they can be played. Availability increases with the visibility and marketing of gambling games, exposure to such games and elements that tempt people to gamble.

Experts estimate that the impact of the approaches included in the act may serve to increase gambling-related harm. This is due to the fact that the marketing of gambling games posing a particular risk of gambling-related harm will be permitted (physical slot machines and casino games excluded). No restrictions in terms of timing or volume will be imposed on marketing or on the use of permitted marketing channels. The consumption of gambling games will not be restricted by means of common consumption limits applicable to all licence holders. 

The act has aimed to establish a regulatory framework that balances restrictive measures designed to prevent and reduce gambling-related harm with elements enhancing the attractiveness of the gambling system that boost channelling capacity.

Under the new system, means to control the availability of gambling games will include certain restrictions on marketing, imposing an age limit to gambling, introducing mandatory player identification, self-exclusion, and restricting gambling consumption.

Channelling refers to steering gambling to a regulated and controlled supply of games. The channelling rate describes the proportion of gambling stakes placed with regulated providers. The channelling rate is impacted by the extent to which gambling companies seek to enter the regulated gambling market.

At present, gamblers may play online gambling games outside the Veikkaus monopoly that are not subject to the legislation or control of Mainland Finland. Going forward, the licences of gambling companies and partly opening the gambling system to competition will basically make it possible for an increasing share of online gambling being steered to the regulated and controlled gambling system in Mainland Finland. 

The development of the channelling rate also depends on how attractive gambling companies find the new licensing system. Attractiveness depends on factors such as licensing procedure, permissibility of marketing, regulation of gambling game supply, and tax-related issues.  

The act has aimed to establish a regulatory framework that balances restrictive measures designed to prevent and reduce gambling-related harm with elements enhancing the attractiveness of the gambling system that boost channelling capacity.

Based on the comments received on the reform, the aim of the Government Programme concerning improvement in the channelling rate will very likely be accomplished with the selected legislative approach.

Based on international benchmarking, options considered during preparation were the blocking of payment transactions or network traffic (IP or DNS blocking, for example) and so-called warning pages. The Government Programme does not include an entry on such tools. At this point, the blocking of network traffic and payment transactions was not proposed. 

According to the government proposal, the functioning of the new gambling games market will be monitored and the need to lay down provisions on payment and network traffic blocking will be assessed once the Gambling Act has entered into force. Account should be taken here of aspects such as technical feasibility and more specific cost impacts on the various operators. 

Furthermore, the act does not prohibit gambling outside the gambling system. The taxation of winnings from gambling will change so that winnings from unlicensed gambling games provided to Finland from another EU/EEA Member State will be liable to tax.

The basis for the reform is not gambling proceeds but the prevention and reduction of gambling-related harm. However, as laid out in the Government Programme, the aim is also to steer gambling to a supply regulated by means of the new Gambling Act. This supply is estimated to impact proceeds from gambling. 

At the same time, it should be taken into account that the reform is estimated to reduce the market share of Veikkaus Oy. The proceeds of Veikkaus Oy are funnelled in their entirety to its current owner, the state of Finland. 

Central government revenues currently consist of profits disbursed to the state by Veikkaus Oy and the lottery tax it pays. According to the General Government Fiscal Plan, the proceeds of Veikkaus Oy’s gambling games and the lottery tax revenues under the current system come to about EUR 700 million per year.  

Under the new gambling system, central government revenues will consist of 1) the dividends paid by Veikkaus Oy to the state, 2) the exclusive licence fee, and 3) the lottery tax and corporate income tax paid by licence holders.

It is not possible to give an exact estimate of future central government revenues, as they will depend on factors such as the performance of Veikkaus Oy’s monopoly operations, the channelling rate of the new system and the overall volume of gambling.

According to the Ministry of Finance, annual central government revenues under the new system are estimated at EUR 570–760 million, depending on the volume of gambling, the channelling rate and Veikkaus Oy’s market share. In the early stages of the reform, central government revenues will be higher due to the exclusive licence fee Veikkaus Oy will pay to the state. 

All forms of gambling will require player identification. Identification will enable self-exclusion, consumption limits, and self-monitoring.

The act will require licence holders to run gambling games in a way that minimises any gambling-related harm. This duty of care will include preventing excessive gambling by means of ongoing monitoring of gambling behaviour. 

Licence holders will also be required to make it possible for gamblers to review the funds and transactions in their player account for the past year and provide gamblers with a function that allows them to assess their gambling behaviour. 

A gambling company-specific money transfer limit will apply to gambling via a player account. Gamblers will need to personally set a limit on the funds they may transfer into their player account in a single day and month. 

Gambling companies must, when necessary, impose quantitative and temporal restrictions on gambling, tailored to the implementation method as well as to individual games and players. Licence holders will be required to prepare a written self-supervision plan in order to ensure that their activities comply with law. 

As laid out in the Government Programme, consumers will be able to self-exclude from gambling on a single platform for all licensed gambling games (self-exclusion register). Gambling companies must also allow players to self-exclude from specific games or game categories. A quick-stop feature to interrupt all gambling will also be in use. Marketing may not be directed at individuals in the self-exclusion register. 

The Government can issue a decree to lay down provisions on daily, monthly and annual maximum loss limits for each gambling company. Loss limit means the maximum amount of money a player could lose when gambling. In addition, the Ministry of the Interior can issue lower-level regulation concerning the characteristics of gambling games in the interests of preventing and reducing gambling-related harm.  

Under the reform, the work to combat gambling-related harm carried out in the administrative branch of the Ministry of Social Affairs and Health will be funded from the Budget. Discretionary government grants may be awarded for the prevention and reduction of gambling-related harm.

As laid out in the Government Programme, the project examined the option of allowing the placement of slot machines only in separate, monitored spaces. It was decided in the reform that the status quo be retained, with slot machines allowed in shops, kiosks and petrol stations. Underlying this decision is the sharp decline in the number of slot machines and the volume of their use. To an increasing extent, gambling has shifted online, into digital channels.  In addition, mandatory identification will allow limits to be placed on slot machine gambling. 

According to the Government Programme, the marketing of gambling games will be permitted in the new gambling system. The act contains provisions on marketing, prohibited marketing tools and methods, information to be provided in the context of marketing, sponsorships and direct marketing bans.

All marketing must be moderate in volume, scope, visibility and rate of repetition. Marketing cannot be considered moderate if an individual marketing measure or the measures as a whole are particularly striking or visible, or if they are repeated with exceptional frequency in one or more marketing channels.

Marketing must not target minors or other vulnerable persons.

Marketing must always include information on the permissible age limit for gambling and where to obtain information on gambling management tools and service providers providing assistance for problem gambling. 

The act sets a minimum age limit for gambling, which will remain 18 years. All gambling will require identification to verify age.

Special attention must be paid to protecting minors from gambling harm in marketing. Marketing must always state the legal age limit for gambling. Marketing must not target under-18s or feature them. Gambling must not be marketed in programmes or events aimed at minors.

Licence holders may market gambling games on their own websites and social media accounts, provided the marketing is not interactive with consumers. The restrictions prevent influencer marketing.  

Sponsored individuals or teams may display the logo of the sponsoring gambling company on their own channels. However, sponsorship must not promote gambling games.

Gambling companies may not enter sponsorship agreements with under-18s or for events or competitions aimed at under-18s. When entering sponsorship agreements, gambling companies must ensure that their logos and the names of gambling products or services do not appear on products or services specifically intended for minors. 
It is likely that the reform will result in considerably higher marketing volume and visibility for gambling games. Despite the restrictions mentioned above, the increased marketing and ample visibility of gambling games may also expose minors to gambling-related marketing. The new legislation will allow the marketing of gambling games that current legislation prohibits Veikkaus Oy from promoting due to their high risk of gambling-related harm. 

Holders of exclusive licences and gambling licences must ensure that their marketing is moderate in volume, scope, visibility and rate of repetition.

The Ministry of Social Affairs and Health and the Finnish Institute for Health and Welfare will have the right to access gambling information in order to make the prevention and reduction of gambling-related harm as effective as possible.

The right of access will be limited to information necessary for the performance of the authorities’ duties. All personal data included in the materials processed must be pseudonymised before disclosure or analysis, i.e. all direct identifying information of persons must be removed. The information may be used for research and improving prevention and treatment. 

In accordance with the Lotteries Act in force until 30 June 2027, only Veikkaus Oy is permitted to market the company and those gambling games that do not involve a high risk of gambling-related harm. However, playing gambling games other than those offered by Veikkaus is not prohibited.

The most significant change to the current situation brought about by the new Gambling Act, which enters into force on 1 July 2027, will be the permitted marketing by licensed gambling companies in Finland. These gambling companies will be allowed to advertise gambling games and their company in various channels, such as television, radio, newspapers and magazines, their own social media accounts and outdoor marketing, subject to certain limitations. 

Opening the gambling market to competition is expected to lead to a significant increase in the number of market actors. In Denmark and Sweden, for example, the number of actors providing gambling games increased significantly after the introduction of the licensing system. It is likely that the reform will result in considerably higher marketing volume and visibility for gambling games. 

The new legislation will allow the marketing of gambling games that current legislation prohibits Veikkaus Oy from promoting due to their high risk of gambling-related harm. Holders of exclusive licences and gambling licences must ensure that their marketing is moderate in volume, scope, visibility and rate of repetition.

Marketing must be moderate in volume, scope, visibility and frequency. Marketing must not target minors or other vulnerable persons. 

Examples of prohibited marketing include portraying gambling as desirable or overly positive, or giving a positive image of repeated, long-term or high-stakes gambling. In addition, it is prohibited to portray gambling as an everyday activity, to present gambling as a solution to a person's financial problems or as an alternative to earning a living, and to describe gambling as harmless or risk-free. 

Licence holders will have limited scope to provide bonus play money and other extras such as free tickets during the customer relationship. All other provision of play money, free games, discounts or special combination offers is prohibited. Direct marketing may target only persons who have given their express consent to direct marketing. Telemarketing is always prohibited. 

The marketing of gambling games must always include information on the age limit for gambling and where to obtain information on gambling management tools and service providers providing assistance for problem gambling.  

On social media, gambling companies may market gambling games only on their own websites and social media accounts. Such marketing may not be interactive with consumers. Therefore, commercial collaboration with social media influencers on the influencers’ own accounts is not permitted. The restriction seeks to protect young consumers in particular. 

The outdoor marketing of gambling games involving a specific risk of harm, such as online casinos and betting, is prohibited. While the brand marketing of licence holders in the competitive market is permitted, marketing materials may not be placed in the vicinity of schools, for example. At sports events and other public events, it will be possible to market not only a licence holder’s brand but also its gambling games.

Under the new system, the marketing of the monopoly enterprise, i.e. Veikkaus, will be subject to the same provisions as actors in the competitive market, with certain exceptions. 

As is the case now, Veikkaus may not market the physical slot machines and casino games that remain under its monopoly, nor the venues where they can be played. The marketing of these gambling games is only permitted in the monitored arcades and casinos in which the said games have been placed. It is, however, permitted to provide information on the locations and business hours of these places where gambling games may be played. 

The outdoor marketing of gambling games involving a specific risk of harm, such as online casinos and betting, is prohibited. The outdoor brand marketing of licence holders in the competitive market is, however, permitted, but marketing materials may not be placed in the vicinity of schools, for example. In addition, at sports events and other public events, it will be possible to market not only the gambling company’s brand but also its gambling games. 

The outdoor marketing of an exclusive licence holder and its pools games, lotteries and instant lotteries, online instant lotteries and combination games is permitted.

Sponsorship will be a permitted form of marketing. Sponsored individuals may display their sponsor on their clothing, social media and websites, for example. The sponsoring licence holder may also act as the main sponsor for a sports arena, in which case the arena may be named after the sponsor and the sponsor’s name and logo may appear in the arena and its structures. Gambling games run by the licence holder may not be mentioned in sponsorships. However, during events it is possible at the venue to market not only the brand of the company running the games, but also the gambling games themselves.  

The sports sponsorships of gambling companies may be expected to increase considerably in the years following the entry into force of the gambling system, after which the growth in sponsorship income is expected to level off. The proceeds from sponsorship are not evenly distributed among the various events. Based on international benchmarking, proceeds are estimated to flow to nationally and internationally important events and to the most successful teams and athletes. 

An exclusive licence can be granted to a limited liability company controlled by the Finnish state and engaged in the running of gambling games. In practice, this means a company within the Veikkaus Group. Gambling licences for the competitive gambling games market and gambling software licences can be granted to a natural or legal person referred to in the Enterprise Act. In addition to general requirements, the licence applicant must also meet the requirements of fitness and propriety laid down in the Gambling Act.

Non-profit organisations may apply for a licence to run gambling games in the same manner and subject to the same requirements as any other entity. The reform of the gambling system is based on the Government Programme, which does not contain any entries on making a specific right to run gambling games available to non-profit organisations. The act does not include an approach modelled on Swedish legislation where non-profit actors may run small-scale gambling games exempt from tax and subject to a lower application fee for the purpose of their fundraising. 

Provisions on the application fees charged to licence applicants are laid down by decree of the Ministry of the Interior until 30 June 2027. Under the Act on Criteria for Charges Payable to the State, the fee must be equal to the average costs incurred from producing the service charged. 

Provisions on the licence fee paid to the state by an exclusive operator, in addition to the application fee, are laid down in the Gambling Act. Payment of the fee aims to ensure that Veikkaus Oy, as a result of its exclusive right, does not receive distortive financial benefit that falls under the scope of the EU rules on state aid. The amount of the fee is set by the Government on the basis of the exclusive operator’s proceeds from gambling games. The validity of the exclusive licence is conditional upon payment of the fee.

The new Gambling Act also lays down provisions on an annual supervision fee to be collected from all licence holders in order to cover the costs incurred by the authority from supervision.

The exclusive licence will be granted for ten years at a time. Gambling game licences and gambling software licences will be granted for not more than five years at a time. 

The new system will allow Veikkaus Group to run gambling games both as an exclusive operator and as a separate company in the competitive market. This will be subject to the condition that the functions of the exclusive operator and the competitive market company, such as gambling game websites, player accounts and customer registers, are clearly separated within the Group. Moreover, the financial relations between the exclusive operator and the competitive market company will have to be organised on market terms. Any distortion of competition will also be tackled by means of the exclusive licence fee so that any excess proceeds from monopoly activities would not be used to finance the Group’s other functions. The Prime Minister’s Office will remain responsible for state ownership steering of the entire Group also going forward.  

Yes. Veikkaus Oy need no longer be a wholly stated-owned limited liability company. This will allow the state owner greater latitude in respect of any future decisions concerning ownership of Veikkaus. The proposed legislation will not immediately change the holding of the state in Veikkaus Oy. In addition, it has been ensured that the state will retain control over Veikkaus Oy under all circumstances. If, at some later point in time, the state decides to relinquish its holding in Veikkaus Oy in part or in full due to the development of shareholder value, this will be subject to the approval of Parliament. 

The new gambling system will be based on licences granted by the supervisory authority upon application. A new task for the authority will be to process licence applications and supervise the licensed activities. As of 1 July 2027, the competent authority will be the new Finnish Supervisory Agency. The National Police Board will act as the licensing authority until 30 June 2027. 

The supervisory authority will have broad powers to supervise gambling services. One of the key supervisory tools will be the technical monitoring of games and player account transactions carried out by the supervisory authority. In addition, licence holders will be required to ensure, through audits by a third-party assessment body, that their game systems, lottery-drawing equipment and lottery-drawing methods are reliable and that the outcomes of the draws are randomised. Licence holders will need to submit annual reports to the supervisory authority on their gambling services. In addition, the authority has extensive right of access to information and right of inspection.

The powers of the supervisory authority to address illegal gambling outside the system and illegal marketing will remain largely unchanged.

The authority may impose on a licence holder an administrative fine for breach or neglect of the obligations laid down in the Gambling Act as well as a penalty payment for more serious infractions. As a last resort, the authority may withdraw the licence. As is currently the case, certain acts in violation of the Gambling Act will be punishable under the Criminal Code. 

To intervene in illegal activities, the authority may also issue an injunction banning the running or marketing of a gambling game and a conditional fine to enforce compliance with the injunction. The supervisory authority will also be required to make public any decisions on injunctions against marketing or game running, decisions on administrative fines and penalty payments, and decisions on withdrawal of a licence. 

The total costs of the Finnish Supervisory Agency depend on factors such as the number of licence applicants and granted licences and the supply of games outside the licensing system. Although the authority’s personnel requirements cannot as yet be precisely estimated, the number of personnel is nonetheless believed to increase considerably from current figures.

Financing is also required for the information systems consistent with the new licensing and supervisory duties. The aim is that, in future, the costs of licensing and supervision will be mainly covered by licence and supervision fees collected from licence holders. 

The new Gambling Act will provide several methods to prevent, detect and address misuse and offences associated with gambling services. These include assessment of the fitness and propriety of licence holders at the application stage, the technical and other monitoring of running gambling games, gambling system audits, restrictions on betting options and an obligation to suspend betting in case of misuse, as well as licence holders’ self-supervision plans and obligations to notify and report. Players must also be provided with a clear-cut procedure for reporting any misuse and other irregularities. Gambling services are also subject to the requirements laid down in the money laundering legislation. 

Since the reform extensively overhauls the gambling system and the legislation on gambling, it is important to monitor and assess how the proposed measures implement the Government Programme’s aim of preventing and reducing gambling-related harm and improving the channelling rate. The functioning of the new legislation will be monitored by means including supervision by the authorities and information received from stakeholders. Parliament has included in its reply a resolution requiring the Government to monitor developments in the channelling rate and gambling-related harm, and to ensure adequate operating conditions and resources for the system's supervision and for work to prevent gambling harm.

The relevant government proposal was submitted to Parliament on 20 March 2025. Parliament adopted the new Gambling Act and the related acts on 16 December 2025. The President of the Republic approved the acts on 16 January 2026.

In autumn 2024, the Ministry of Finance set up a project to implement the licensing and supervision activities of the new gambling system (VM168:00/2024). Running from 17 October 2024 to 31 December 2026, the project is tasked with preparing the necessary measures to allow activities under the new gambling system to commence in accordance with the timetable laid down in the act. The project will be responsible for matters such as preparing the necessary information systems and their acquisition as well as the organisational structure of the operational unit for supervisory functions.

The draft proposal was prepared within a Ministry of the Interior legislative project by a working group under the guidance of a political steering group composed of state secretaries. In addition, the Ministerial Committee on Economic Policy outlined the transition of horse-race gambling to the same competitive licensing model applied to other betting.

On 28 November 2023, the Ministry of the Interior held an extensive consultation session attended by some 60 experts from various stakeholder groups. Other experts have also been consulted in the project. The government proposal was circulated for comments from 3 July to 18 August 2024 and the proposal was finalised on the basis of feedback from the comments.

The proposed legislation concerning changes to the gambling system was notified to the European Commission on 1 November 2024. The standstill period that is a part of the notification procedure binding on Member States ended on 4 March 2025. The purpose of the notification was to elicit feedback from the Commission and the other Member States as to whether the reform might hamper the free movement of services in the single market. The Commission submitted no remarks or detailed opinion. Malta was the only Member State to submit a detailed opinion. The notification and the attached draft government proposal (notification number 2024/0601/FI) are publicly available in TRIS

The target timetable set for the reform in the Government Programme has impacted on the opportunities to consult experts and stakeholders and thus to comprehensively assess the alternative avenues or their impacts. For this reason, the proposal has not in all respects been able to justify, on the basis of the assessed impacts of the different options, why the objectives are not considered attainable equally well by alternative means as by the proposed approach

The term of the legislative project has been extended until 28 February 2027. During the extension period of the project, the government decrees and the decrees of the Ministry of the Interior that fall within the remit of the Ministry of the Interior and concern the running of gambling games will be prepared. Based on the assessment carried out in the project, these decrees should be issued as part of the new legislation on the gambling system.

During the project, meetings were held with the Government of Åland. The reform makes it possible for Åland-based PAF to apply for a licence. The lottery tax and corporate tax paid by PAF would be remitted back to Åland. Calculations on the income recognised by PAF and the taxes paid by it cannot be made, as their development depends on factors independent of the legislative reform (in particular the market share of PAF and the development of its business). 

In order to implement the entry in the Government Programme, the entire draft proposal was translated into Swedish to allow the Government of Åland to comment on it. The Government of Åland pointed out that the blocking of payment traffic and online traffic, may be problematic in relation to the Act on the Autonomy of Åland. The Government of Åland also remarked on issues of tax equalisation falling within the remit of the Ministry of Finance.