Casino comeback discussions (projects in Congress) - Brazil

Casino comeback discussions (projects in Congress)

1) Brief context: From "eternal" PL 442/1991 to Senate PL 2. 234/2022

The modern wave of debate relies on PL 442/1991, one of the longest-running congressional documents. Its current revision regulates the exploitation of games and wagers throughout the country (including casinos, bingo and "jogo do bicho") and even repeals the 1946 decree banning casinos. His dossier later moved to the Senate as PL 2. 234/2022.

2) What exactly PL 2 offers. 234/2022

The project permits the operation of casinos, bingas, online games and "jogo do bicho" under government supervision, with a focus on licensing, fiscal rules and AML/CTF measures. It is based on a risk management model that is compatible with tourism and integrated resorts.

3) Timeline of key events (2024-2025)

June 2024. The Senate Constitution and Justice Commission (CCJ) approved the draft (Senator Iražá's report), paving the way for plenary consideration.

December 2, 2024. The Senate apparatus officially announced: the legalization of the casino/" jogo do bicho" is included in the agenda of the Plenum.

December 4, 2024. On the day of voting, the topic was removed from the agenda: some senators demanded more time for discussion and amendments; the speaker himself asked not to vote on the same day. The decision was confirmed by an official statement from the state agency.

June-July 2025. The topic returns: the Senate is discussing the "urgency" regime and voting, after which it announces the possible submission of the draft to the Plenum (with the support of a group of senators). Regional and industry publications write that the vote is ready.

July 6-9, 2025. A number of media and official sites report: voting is appointed/postponed, and then again leaves the agenda by decision of the Senate President - the picture "step forward, step back" characteristic of politically sensitive projects.

October 2025. Industry publications again record the Senate's readiness to vote and support the concept of integrated resorts as an indicative model.

4) Why the project comes out, then leaves the agenda

Political sensitivities. Legalization touches on religious and moral arguments; some civil and church organizations publicly disagree. The chairmen and leaders of the factions balance internal coalitions, which is why even questions "ready" for voting can be withdrawn on the day of the meeting.

5) Arguments of the parties

Supporters

Tourism and employment. Casinos as part of integrated resorts are able to diversify the economy, create jobs and increase tax revenues, developing related industries - hotels, gastronomy, entertainment and retail.

Control instead of shadow. Regulation transfers existing demand from the illegal segment to a transparent circuit (KYC/AML, audit, ombudsman).

Opponents

Social risks. Arguments about the growth of problem play and family costs, doubts about the distribution of fiscal benefits.

Institutional objections. Religious organizations and some parliamentarians oppose, appealing to the "moral responsibility" of state power.

6) Technical fault lines in amendments

Model "integrated resorts" vs. wider resolution formats.

Fiscal parameters: how to divide revenues between the federation, states, municipalities and sectoral funds (sports/culture/tourism).

Advertising mode and Responsible Gaming: age threshold, warnings, ban on credit rates/limits, ombudsman for consumer disputes (some of these approaches are already being implemented in the sports betting segment).

7) Connection with the already adopted regulation of sports betting

Since 2018, Brazil has been consistently building regulation of sports betting and online games (2018→2023→portarii of the Ministry of Finance 2024-2025). This serves as a techno and compliance "template" for the possible legalization of casinos: KYC/AML, advertising restrictions, RG tools, sports integrity cooperation. If PL 2. 234/2022 will pass, parallels in authorization procedures and supervision are likely. (Background on rates - see current norms and by-laws of the Ministry of Finance.)

8) What does this mean for the industry and regions (if the law passes)

IR (integrated resort) investments. Probably a limited number of licenses in strategic locations with requirements for number of rooms, MICE infrastructure and entertainment cluster.

Strict compliance. Finmonitoring, RNG/live studio audit, 2FA and journaling, ombudsman - "new norm" by analogy with rates.

ESG and local employment. Quotas/training programs, reporting on RG, noise modes and community complaints.

9) Near-term scenarios

1. Voting with adjustments. Plenary approval with batch amendment of fiscal and RG provisions → rules are detailed in by-laws.

2. New transfers. A repeated "rotation" of the agenda is possible due to domestic political bidding and coalition resistance.

3. Phased model. Launch only IR casinos (as "showcases") with subsequent impact assessment and possible expansion of the set of allowed verticals.

10) How to follow the process and what to check

Official project cards on the websites of the Chamber of Deputies and the Senate (statuses, texts, amendments, minutes of meetings).

Senate news feeds on inclusion/de-summons and speaker/chairman statements.

Specialized publications (gambling/tourism business) - to assess investment expectations and positions of industry associations.

11) The bottom line

The return of casinos in Brazil remains politically possible, but procedurally "uneven" track. In 2024, the project was on the agenda and was filmed on election day; in 2025, the topic returned with the support of some senators and business associations, but continues to face moral and coalition barriers. The key to success is a compromise on the IR model, strict RG/AML standards and transparent tax distribution. Before the final vote, businesses and regions should prepare ESG and personnel plans, and society should demand clear rules for consumer protection and public reporting.