Brazil’s gambling debate gains new momentum at Lisbon Forum

The 14th Lisbon Forum brought Brazil’s gambling agenda back into focus, combining two sensitive debates: the possible legalisation of land-based casinos and the first results of the country’s regulated online betting market.

Brazil’s gambling regulation returned to the centre of debate this week during the 14th Lisbon Forum in Portugal, where legal experts, betting executives, sports representatives and public figures discussed both the future of casino legalisation and the current state of the regulated online betting market.

One of the most discussed topics remains Bill No. 2,234/2022, which is pending in the Senate and would allow the operation of casinos, bingos, online games and jogo do bicho under a regulated framework. The proposal would create supervision and inspection mechanisms, increase transparency and introduce measures to prevent crimes such as money laundering and terrorist financing.

The casino debate gained new visibility after João Otávio de Noronha, minister of Brazil’s Superior Court of Justice, defended legalisation while attending the Lisbon Forum. He argued that Brazil is effectively allowing jobs and tax revenue to be generated abroad when Brazilians travel to places such as Monaco or Las Vegas to gamble. He also questioned the inconsistency of allowing online bets and lotteries while keeping physical casino-style games prohibited.

Noronha’s position reinforces the argument made by supporters of PL 2234/22: that gambling already exists in Brazil, but remains partly outside formal supervision. For advocates of legalisation, casinos in resorts and other controlled venues could support tourism, attract investment, create jobs and give the state a clearer regulatory and tax framework. Critics, however, continue to warn about addiction, money laundering and the risk of expanding gambling before Brazil has fully absorbed the impact of online betting.

That second issue was also central at the forum. On Tuesday, June 2, the panel “Electronic Games and Online Betting: Balance of Regulatory Results” brought together representatives from the betting industry, lawyers and sports authorities to evaluate the first results of Brazil’s online betting regulation. The discussion focused on consumer protection, responsible gambling tools, sponsorship in sport, financial restrictions and the difference between licensed operators and illegal platforms.

Participants argued that regulation did not create the betting market, but made an existing offshore activity visible to the state. Lawyer Fernanda Meirelles said millions of Brazilians were already betting on offshore platforms without supervision, inspection or player protection before the regulated framework was introduced. In this view, regulation turned the bettor into a consumer with rights, protections and access to formal complaint and monitoring channels.

The panel also highlighted safeguards already applied by licensed operators. These include behavioural monitoring from the first user access, risk detection, mandatory pauses, reflection tools and self-exclusion mechanisms. A centralised government self-exclusion platform allows users to register their CPF, after which legal operators must block new registrations or remove existing users from their platforms.

Another major point was financial protection. Speakers stressed that legal operators are subject to restrictions absent from illegal platforms, including bans on the use of credit cards for betting and blocks for users receiving Bolsa Família, BPC and, more recently, Desenrola-related restrictions. The concern raised at the forum was that excessive pressure on the regulated market could push vulnerable users toward illegal operators, where these controls cannot be enforced.

Sports sponsorship was also part of the discussion. Michelle Ramalho, vice-president of the Brazilian Football Confederation, addressed the role of betting sponsorships in football and other sports, while Guilherme Figueiredo of Betano Brasil discussed tax revenue and the financial contribution of licensed operators. The panel also presented data on bettor profiles, including an average monthly spend of R$122 and a user base concentrated mainly among men aged 25 to 40.

Taken together, the Lisbon Forum discussions show that Brazil’s gambling debate is no longer limited to whether the country should legalise or prohibit games of chance. The central question is now how to regulate different verticals without strengthening the illegal market. For physical casinos, the debate is about tourism, investment and state control. For online betting, it is about consumer protection, financial safeguards, advertising, sports integrity and enforcement against unlicensed platforms.

For Brazil, the next stage will depend on political timing. PL 2234/22 remains ready for Senate plenary deliberation, while the online betting market is already operating under a regulated model but faces growing pressure for tighter restrictions. The outcome will determine whether Brazil moves toward a broader gambling framework or continues to treat casinos, lotteries and online bets as separate regulatory battles.