Estonia is preparing to amend its Gambling Act of 2008, with the Ministry of Finance set to present draft amendments by mid-2025. However, these changes are not aimed at tightening gambling laws, but rather at refining existing regulations to address concerns related to in-play mechanics, player protections, and gambling advertising.

The revisions, led by Rainer Osanik, head of financial policies and intelligence, will focus on updating online gaming rules, expanding self-exclusion programs, and reviewing the taxation structure. Additionally, Estonia’s minimum gambling age of 21 will remain unchanged, and loot boxes and virtual currency purchases in video games will not be addressed under the new framework.

Key Amendments in Estonia’s Gambling Act

The proposed amendments aim to introduce clarifications and improvements without imposing overly restrictive measures on the gambling industry. Below are the main changes under consideration.

1. Updates to Online Gaming Regulations
The Estonian Economic Affairs Committee has raised concerns regarding the design of online gambling systems and in-play betting mechanics.

The Ministry will review how online games are structured, particularly reward systems and incentive mechanisms that could contribute to gambling-related issues.
The focus will be on ensuring fair play and responsible gambling rather than outright restrictions.
New guidelines could be introduced to limit the use of certain in-play incentives, which are often criticized for encouraging excessive betting behavior.
2. Expansion of the Self-Exclusion Scheme
One of the most significant updates involves Estonia’s national gambling self-exclusion program, HAMPI. Currently, this system only allows players to voluntarily exclude themselves from gambling platforms.

The proposed amendments aim to permit family members to request exclusions for relatives who exhibit problematic gambling behavior.
Courts may also be granted authority to mandate self-exclusion orders in severe cases.
However, the Ministry has expressed concerns about potential legal barriers, fearing that a complex legal process could discourage individuals from using the self-exclusion system.
3. No Additional Tax Increases on Gambling
In 2023, Estonia increased gambling taxes, raising:

Remote gambling, Toto, and tournament tax from 5% to 6%
Lottery sales tax from 18% to 22%
Despite ongoing reviews of the tax regime, no further tax hikes are planned at this stage. However, the Ministry of Finance will continue to assess the impact of these recent changes on the gambling industry.

4. No Immediate Ban on Gambling Advertisements
Efforts to ban gambling advertisements in Estonia have faced political opposition.

In 2023, the coalition government proposed banning gambling ads on TV and radio, but the measure was blocked by opposition parties.
While a total ban on gambling advertisements is unlikely, new regulations may clarify existing advertising standards to prohibit misleading claims.
Specifically, advertisements that suggest gambling as a solution to financial problems or promote unrealistic winnings may face stricter oversight.

What’s Not Changing?

1. Minimum Gambling Age Remains at 21
Unlike some countries that allow 18-year-olds to gamble, Estonia maintains a minimum age of 21 for all gambling activities. There are no plans to lower this age limit under the revised Gambling Act.

2. No Action on Loot Boxes and Virtual Currency in Video Games
Despite growing concerns about the potential risks of loot boxes and in-game purchases, Estonia’s Ministry of Finance has no immediate plans to regulate these features. This means that video game companies can continue offering loot boxes and virtual currencies without additional legal restrictions.

Industry Reactions and Potential Impact

1. A Balanced Approach for the Gambling Industry
The absence of drastic restrictions suggests that Estonia is taking a balanced approach to regulating gambling. Industry experts believe this could:

Provide greater clarity for gaming operators
Encourage responsible gambling practices without stifling industry growth
Strengthen player protection mechanisms while maintaining a competitive market
2. Strengthened Consumer Protections
Expanding HAMPI’s self-exclusion program could significantly benefit problem gamblers and their families. By allowing family-initiated exclusions, Estonia is taking steps toward proactive gambling harm prevention.

However, legal challenges could arise, particularly regarding how and when courts should intervene in self-exclusion requests.
If not implemented carefully, the new rules could face opposition from privacy advocates and human rights organizations.
3. Ad Industry Adjustments
Gambling operators may need to revise their advertising strategies to comply with the new truth-in-advertising guidelines. This could include:

Eliminating misleading slogans
Adjusting marketing campaigns to ensure they promote gambling as entertainment rather than financial gain
Focusing on responsible gambling messaging

Final Thoughts: A Step Toward Responsible Gaming

The upcoming amendments to Estonia’s Gambling Act reflect a progressive but cautious approach toward regulating the industry. By focusing on player protection, clearer advertising guidelines, and responsible gaming measures, Estonia aims to balance industry growth with consumer safety.

With the first draft of the amendments expected by mid-2025, gambling operators and policymakers will have time to assess the potential impact and make necessary adjustments before the legislation takes effect in 2026.