Finland’s shift toward a fully licensed gambling market advanced this week as the government submitted legislative proposal HE 16/2025. With this move, the country takes a decisive step toward reshaping its gambling ecosystem. It introduces clear licensing rules and redefines how both operators and suppliers will function within the market.
Major Overhaul to B2B and B2C Licensing
The proposal outlines a structured dual-license system that divides the future market into two main categories.
First, the Gambling Game License (rahapelitoimilupa) targets B2C operators. These companies will be able to offer online betting—covering fixed-odds, pool betting, and virtual sports. Additionally, they can provide online casino games such as slots, table games, and bingo.
Finland plans to open the application window in early 2026. Each license will remain valid for up to five years. Licensed operators must also pay a 22% GGR tax, ensuring steady revenue for the state as the market opens.
Next, the Game Software License (peliohjelmistotoimilupa) will regulate B2B suppliers. This license applies to companies involved in manufacturing, providing, installing, or modifying gambling software. Moving forward, licensed operators may only use software supplied by companies holding this B2B license.
Applications will begin in early 2027. Finland expects all operators to transition fully to licensed software by January 1, 2028. These licenses will also carry a five-year maximum term, mirroring the B2C structure.
Veikkaus to Split into Separate Entities
To comply with EU competition rules and encourage fair market participation, the proposal confirms that state-owned operator Veikkaus Oy will separate its operations into distinct legal entities.
The Monopoly Entity will retain exclusive rights over the national lottery, physical slot machines, and land-based casinos. This monopoly license will run for ten years.
Meanwhile, a new Competitive Entity will enter the soon-to-open market, competing directly with private operators. This will occur in online casino and betting verticals. It will operate under standard five-year licenses and follow the same 22% tax rate, creating a more balanced landscape.
New Supervisory Authority to Oversee the Market
Finland will establish a dedicated regulator under the forthcoming Lupa- ja valvontavirasto (Permit and Supervision Agency). This authority will handle licensing, monitor compliance, and oversee the entire regulated environment.
The agency will operate with funding drawn from the industry itself through a supervision fee. This approach ensures the regulator’s long-term sustainability and independence.
