Estonia Considers Non-Voluntary Gambling Bans: New Powers for Families

Estonia is taking a significant step in gambling regulation by moving beyond purely voluntary self-exclusion. The Ministry of Finance has confirmed a planned review of the country’s Gambling Act next year, with the goal of allowing third parties to place individuals on the exclusion list. These changes are expected to take full effect by mid-2027, marking a shift in how the state handles gambling addiction and player protection.

Currently, the Estonian system relies entirely on the individual's initiative. Players must submit a written application to be excluded for a period ranging from six months to three years. However, officials argue that this voluntary model has limitations, as those suffering most from addiction often lack the insight or will to stop. The proposed reform aims to empower those who bear the brunt of the consequences: the families of the addicts.

Numbers and facts

Data from the Estonian Tax and Customs Board highlights the growing demand for protection mechanisms. The number of people on the self-exclusion list has climbed steadily from 17,203 in 2023 to approximately 21,000 today. Breaking down the figures, there are currently 20,628 active restrictions for games of chance, 9,767 for sports betting, and 5,968 for lottery products. A notable spike occurred in sports betting, which saw 348 new restrictions since January, likely influenced by major international tournaments.

Financially, the gambling sector remains a vital revenue source, contributing €61 million in taxes last year. To maintain its status as a competitive jurisdiction, Estonia plans a phased reduction of the remote gaming tax. Starting in 2029, the rate will drop from 6% to 4%, decreasing by 0.5 percentage points annually. This strategy is designed to attract international operators and position Estonia as a primary hub for the iGaming industry, rivaling jurisdictions like Malta.

Background

The push for third-party exclusions is rooted in the social reality of gambling harm. Rainer Osanik, head of financial information policy at the Ministry of Finance, noted that under current laws, families are powerless to intervene legally.

"No one else can currently add them to the list, but family members of a gambling addict often suffer. The system should allow a person to be added to the list on certain additional grounds, either at the initiative of a family member or by court order." - Rainer Osanik, Head of Financial Information Policy, Ministry of Finance

Under the existing Gambling Act, the burden of enforcement lies heavily on the operators. If a restricted individual is permitted to play, the operator is legally required to refund all losses. Conversely, the player must return any winnings earned during that period. Authorities like Jekaterina Nikitina from the Tax and Customs Board interpret the rising number of exclusions as a positive sign of public awareness rather than a failure of the industry, suggesting that players are increasingly utilizing the available safety nets.

However, the path to these reforms has not been without administrative hurdles. Due to a legislative drafting error in late 2025, remote gambling was inadvertently left untaxed at the start of 2026. In an unusual display of industry cooperation, several operators made voluntary payments totaling €1.4 million to cover the shortfall. Parliament corrected the error in March 2026, establishing a uniform 5.5% tax rate before the long-term reduction plan takes over.

Why it matters for German players

For players in Germany, the Estonian developments reflect a regulatory standard that is already in place. The German State Treaty on Gambling 2021 (GlüStV 2021) already facilitates third-party exclusions through the OASIS system. If a family member can provide evidence of addiction or significant debt, they can petition for a player to be banned. The player is given a chance to respond before the restriction is finalized across all licensed platforms.

Furthermore, German regulations include strict cross-operator deposit limits of €1,000 per month and a €1 stake limit per spin on virtual slots, monitored via the LUGAS system. While Estonia prepares to introduce these measures by 2027, German players already benefit from these protections. It is crucial for users to stick to the GGL whitelist to ensure these safety mechanisms, including the mandatory OASIS check and LUGAS integration, are fully functional and legally enforceable.

What it means for GGL-licensed casinos

For GGL-licensed operators, Estonia's move validates the stringent German approach to player safety. The liability for failing to block restricted players—resulting in the refunding of losses—is a concept that has already seen significant litigation in Germany. Operators under the GGL regime are already equipped with the necessary IT infrastructure to handle real-time exclusion checks, making them the safest choice for players who prioritize responsible gaming and legal certainty.