Finland, gambling reform without revolution: slot machines stay in bars
Finland is preparing to turn a new page in the gambling sector. The government led by Petteri Orpo presented a draft law this spring that will partially open the market, putting an end to the monopoly of Veikkaus, the state-owned operator that has so far held exclusive control of the industry. The reform, due to come into force in January 2027, represents a historic step for a country that has maintained a centralised model for decades. Yet one decision has raised eyebrows: slot machines will not disappear from bars, supermarkets, and kiosks, but will remain in place.
Online liberalisation and betting open to private operators
At the heart of the reform lies the regulation of online casinos and sports betting. From 2027, private operators will be able to apply for licences to offer services and advertise within the Finnish market, ending an exclusive regime that has long restricted competition. Lotteries and slot machines, however, will remain under the direct control of Veikkaus. In this way, the government aims to balance market liberalisation with continued oversight of the most sensitive sectors.
A clash with the scientific community
The decision to keep slot machines in public places goes against expert recommendations. A study commissioned by the government itself from the Ministry of Health and the National Institute for Health and Welfare (THL) identified the removal of slot machines from unsupervised venues and their transfer to dedicated gaming halls as the most effective way to reduce gambling-related harm. Despite these findings, the political working group composed of undersecretaries opted to leave the current system unchanged.
Economic reasons behind the choice
The rationale for preserving slot machines in shops and bars is not purely political but also economic. Retailers hosting the machines receive compensation from Veikkaus, and the removal of these machines would have generated significant financial losses. In a context where the government is keen to ensure economic stability and consensus, the perceived costs of removing the machines outweighed the potential benefits.
A new regulatory authority
The reform is not limited to opening the market: it also introduces a more structured system of supervision. From 2027, the entire sector will be overseen by a newly established body, the Licensing and Supervisory Agency. This authority will be tasked with monitoring private operators, overseeing their advertising activities, and ensuring compliance with conduct rules and consumer protection measures. The move aims to create a safer and more regulated environment, even in a newly competitive landscape.
The future of Veikkaus
Another potentially disruptive element concerns Veikkaus itself. The reform allows, at least in theory, for partial privatisation: the state could sell part of its stake while retaining majority control. Should this option materialise, it would radically transform Veikkaus’s role, turning it from a public monopoly into a competitor alongside other operators.
Awaiting parliamentary debate
The draft law is expected to reach Parliament by the end of 2025. That will be the stage where the details of the reform are finalised and the most controversial decisions—above all, the presence of slot machines in public venues—may be reassessed. Public opinion and industry observers remain divided: on one side is the need to protect vulnerable citizens, on the other, the requirement to preserve an economic balance that involves both the state and local businesses.
A half reform?
With this reform, Finland is taking a historic step towards liberalisation, but not a complete one. The opening to private operators and the creation of a new regulatory authority signal a clear intent to modernise. Yet the failure to remove slot machines from bars and supermarkets risks leaving the most sensitive issue unresolved: protecting citizens from gambling addiction. The challenge in the coming years will be to reconcile economic interests with the urgent need to reduce gambling-related harm, in a sector where every political choice has direct consequences for everyday life.
This article was first published in Italian on 12 September 2025.
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