Finland’s new Gambling Act faces constitutional review

Finland is currently navigating a significant overhaul of its gambling legislation with the government’s proposed Gambling Act, which is set for implementation in early 2027. The bill, designed to modernize the country’s gambling sector and introduce partial de-monopolization, has recently come under careful review by Finland’s Constitutional Committee, which has raised multiple concerns regarding legal clarity and compliance with constitutional standards.

The committee’s scrutiny highlights key issues that could affect the bill’s progress through Parliament, particularly in areas surrounding advertising regulations, the legality of professional gambling, and broader legislative definitions. This article provides an in-depth look at the current status of Finland’s Gambling Act, the Constitutional Committee’s findings, and the wider implications for the nation’s gambling market.

Constitutional Committee identifies ambiguities in the bill

Finland’s Constitutional Committee has underscored potential problems with the draft legislation, specifically citing ambiguities in language that could create legal uncertainties. One of the committee’s primary concerns relates to provisions on gambling advertising, which are currently formulated in a way that the committee finds insufficiently precise for legal and regulatory enforcement.

A central point of contention is the use of the term “moderate advertising”, which appears in several clauses of the proposed bill. The Constitutional Committee has noted that the term is open to interpretation and could lead to inconsistent enforcement or legal disputes once the legislation takes effect. The committee has therefore requested the Administrative Committee to provide a more detailed explanation of what constitutes moderate advertising in the Finnish context.

Additionally, Section 52(1)(15) has been highlighted as problematic due to its broad and potentially vague language. The Constitutional Committee recommends that this section be removed or revised before the bill can proceed to the next phase of the legislative process. Without such amendments, the bill risks encountering constitutional challenges that could delay its implementation.

Advertising regulations remain the focal point

Advertising regulations have emerged as the central concern in the Constitutional Committee’s review. In Finland, gambling advertising is strictly regulated, and the government has historically sought to balance the promotion of gambling services with consumer protection measures. The committee’s feedback emphasizes that the language used in the proposed bill must clearly define what is permissible to ensure compliance with constitutional principles and prevent potential abuses.

The focus on advertising is particularly relevant in light of Finland’s plans to partially de-monopolize its gambling sector. By opening certain parts of the market to competition, the legislation will inevitably lead to increased advertising activity. Clear regulatory definitions are therefore crucial to ensure that advertising does not become excessive or misleading, while also allowing operators to communicate their services within a legally sound framework.

The committee’s recommendations suggest that without precise definitions, operators could face legal uncertainty, and enforcement authorities may struggle to apply the law consistently. This highlights the importance of legislative clarity in avoiding both litigation and regulatory gaps.

Professional gambling and tax compliance

Another area addressed by the Constitutional Committee concerns professional gambling and taxation. The committee emphasized that any new provisions relating to professional or commercial gambling must remain aligned with constitutional requirements, particularly regarding taxation and legal oversight.

Professional gambling, which includes activities conducted by licensed operators or high-volume players, requires precise rules to ensure fairness and transparency. The committee’s insistence on accuracy in tax legislation reflects Finland’s broader commitment to fiscal responsibility and constitutional compliance. Any ambiguity in this area could lead to disputes over taxation obligations or challenges to the legal framework governing professional gambling.

Legislative process and the Administrative Committee’s role

The Constitutional Committee’s feedback requires the Administrative Committee to amend the bill before it can proceed through Parliament. This step is critical because the Administrative Committee has the authority to clarify language, address ambiguities, and ensure that the proposed legislation meets both legal and constitutional standards.

Once the recommended adjustments are made, the bill can advance to further parliamentary scrutiny and, ultimately, implementation in early 2027. Lawmakers are expected to closely consider the committee’s guidance to prevent potential legal disputes and ensure that the new gambling framework operates smoothly.

Background: Finland’s move toward market liberalization

Finland’s plans to reform its gambling market have been developing over several years. Traditionally, the country has maintained a state-controlled monopoly system, with Veikkaus, the national operator, holding exclusive rights over gambling services. However, efforts to liberalize the market have intensified in recent years, following broader European trends toward regulated competition in gambling.

In October 2023, the European Gaming and Betting Association (EGBA) welcomed Finland’s plans to partially de-monopolize its gambling market. The reform is designed to introduce competition while maintaining strict consumer protections and responsible gaming measures. By allowing multiple operators to participate, Finland aims to encourage innovation, enhance player choice, and align its market with international standards.

A year later, in November 2024, it was confirmed that horseracing would be included under the new regulatory system, expanding the scope of competitive gambling within the country. The inclusion of horseracing reflects Finland’s intent to diversify its gambling offerings while maintaining careful oversight to prevent problem gambling and protect vulnerable players.

Current controversies and market tensions

Despite the bill’s progress, tensions have emerged within Finland’s gambling industry. Following the submission of the new Gambling Bill in March 2025, the current monopoly operator, Veikkaus, has faced allegations from Swedish operator ATG of engaging in anti-competitive practices.

ATG claims that Veikkaus is attempting to secure a favorable market position ahead of the bill’s implementation in 2027, potentially undermining competition and market fairness. These allegations highlight the high stakes involved in Finland’s gambling reforms, as established operators seek to maintain market dominance while new entrants prepare to compete under the updated legal framework.

The Constitutional Committee’s focus on clear and precise legislative language is therefore not only a matter of constitutional compliance but also a tool for ensuring a level playing field among operators. Clear definitions, particularly regarding advertising and professional gambling, are essential to prevent disputes and promote fair competition.

Implications for operators and consumers

The Constitutional Committee’s scrutiny has significant implications for both operators and consumers in Finland. For operators, clear legislative definitions and regulations are necessary to plan marketing strategies, comply with tax obligations, and navigate licensing requirements. Ambiguities in the law could lead to litigation, financial penalties, or reputational risks.

For consumers, the focus on advertising clarity and responsible gambling measures is critical. By defining what constitutes moderate advertising and ensuring that gambling promotions are appropriately regulated, the legislation aims to protect players from misleading or excessive marketing. In addition, clear rules regarding professional gambling and taxation help maintain the integrity of the market and prevent unfair practices that could disadvantage ordinary players.

Next steps for the Gambling Act

The Finnish Parliament and Administrative Committee are expected to take the Constitutional Committee’s recommendations seriously. Key next steps include:

• Revising ambiguous language, particularly around advertising and Section 52(1)(15)
• Ensuring tax and professional gambling regulations comply with constitutional standards
• Clarifying the regulatory framework for horseracing and other newly liberalized gambling sectors
• Facilitating a smooth transition from a monopoly to a partially liberalized market while maintaining responsible gambling safeguards

If these steps are successfully implemented, the bill should proceed through the legislative process without significant delays, enabling Finland to meet its target of early 2027 implementation.

Conclusion

Finland’s proposed Gambling Act represents a pivotal moment in the country’s gambling history, signaling a shift from monopoly control to a more competitive and regulated market. While the Constitutional Committee has identified areas requiring clarification, particularly in advertising regulations and taxation, the legislative process remains on track.

By addressing the committee’s concerns, Finland can implement a modern, legally sound framework that balances market liberalization with consumer protection. The developments surrounding this bill also serve as an important reminder of the complexities involved in gambling legislation, where constitutional compliance, regulatory clarity, and market fairness must all be carefully balanced.

As the country moves closer to the 2027 implementation date, all stakeholders—operators, regulators, and consumers alike—will be closely monitoring how Finland navigates these legal and regulatory challenges.

FAQs

What is the primary concern of Finland’s Constitutional Committee regarding the new Gambling Act?
The committee’s main concern is ambiguous language in advertising regulations, particularly the term “moderate advertising.”

When is Finland planning to implement the new Gambling Act?
The new Gambling Act is scheduled for implementation in early 2027.

Which section of the bill has been specifically flagged as problematic?
Section 52(1)(15) has been identified as overly broad and recommended for removal or revision.

How does the bill address professional gambling?
The bill requires precise rules for professional gambling to ensure tax compliance and constitutional adherence.

Why is advertising regulation a focal point in the legislation?
Advertising regulations are critical to prevent misleading promotions and maintain fairness as the market becomes partially liberalized.

What role does the Administrative Committee play in the legislative process?
The Administrative Committee is responsible for amending and clarifying the bill before it proceeds to Parliament.

Which operator has raised anti-competitive concerns in Finland?
Swedish operator ATG has accused Veikkaus of attempting to secure a favorable market position.

How does the reform affect horseracing in Finland?
Horseracing will be included under the new regulatory system, allowing competition while ensuring oversight.

What are the benefits of partially de-monopolizing Finland’s gambling market?
It encourages innovation, increases player choice, and aligns the market with European regulatory standards.

How will consumers benefit from the new Gambling Act?
Consumers will gain protections from excessive or misleading advertising and have a fairer, more transparent gambling environment.