Applying for permits

In order to offer gambling in Estonia, a company must first apply for an activity licence for organising gambling and an operating permit from the Estonian Tax and Customs Board.

The first thing that a company must do is to apply for an activity licence, upon the issuance of which the company must apply for a separate operating permit for each gaming location. Only when issuing an activity licence or operating permit is the company able to start offering gambling at the gaming locations specified in the operating permit.

An activity licence or operating permit does not have to be applied for in the case of organising a commercial lottery, but a notice of economic activities must be submitted concerning the organisation of a commercial lottery. 

Additional information about the descriptions of gambling and the forms of gambling.

Activity licence for organising gambling

An activity licence grants the right to apply for operating permits for gambling and is valid for an indefinite period of time. You can apply for an activity license to offer games of chance (which also include poker tournaments), toto and games of skill. A separate activity licence is required to provide each type of game.

An activity licence is not required in order to organise a lottery, simply applying for an operating permit is sufficient. Applying for an activity licence is also unnecessary if you want to organize games of skill, possible prize of which is getting the opportunity to take part in the same game again.

There are no harmonised requirements for the organisation of gambling in the European Union. This means that an activity licence obtained from another European Economic Area country does not give you the right to offer gambling in Estonia and vice versa.

An activity licence can be applied for by a public limited company or a private limited company registered in Estonia or in the European Union, share capital amounts to at least:

  • 1,000,000 euros for games of chance;
  • 130,000 euros for toto;
  • 25,000 euros for games of skill.

The gambling operator must be a reliable legal entity, for whom the organization of gambling is its only activity.

Non-resident companies must register with the Estonian Tax and Customs Board as a non-resident taxpayer before submitting an application.

Shareholders with a qualifying holding, beneficial owners or members of a management body with a significant shareholding in a gambling operator may not include a person who meets any of the following criteria:

  • the person has a criminal record;
  • the person has been a member of the management body of a legal person that has organised gambling without an activity licence or operating permit or whose activity licence has been revoked on the bases set out in clauses 20 (1) 2)–4) or 7) of the Gambling Act;
  • a court decision made in bankruptcy proceedings indicates that the person has caused the insolvency of a company due to a grave error in management.

In order to obtain an activity licence for organising gambling, fill in the application form and attach the documents listed in the annex to the application. 

Before submitting an application, the company must pay the state fee, the amount of which varies according to the type of gambling.

The state fee for the activity licence is:

  • 47,940 euros for organising a game of chance;
  • 31,960 euros for organising a toto;
  • 3200 euros to organise a game of skill.

The state fee can be transferred to the following bank accounts of the Ministry of Finance:

SEB – IBAN EE 89 1010 2200 3479 6011
Swedbank – IBAN EE93 2200 2210 2377 8606
Luminor Bank – IBAN EE 701 7000 1700 1577 198

The reference number must be indicated on the payment order: 2900082919.

An application may be submitted:

The Estonian Tax and Customs Board shall take a decision on granting or refusing to grant an activity licence within four months after receipt of all the necessary documents and information, but not later than within six months after receipt of the application for an activity licence.

You will be informed of the issuing of the activity licence by e-mail or via the e-services environment of the Estonian Tax and Customs Board. The activity licence is issued electronically.

The gambling operator shall immediately inform the Estonian Tax and Customs Board about all changes in the information submitted for obtaining the activity licence.

Operating permit for gambling

An operating permit for gambling is required in order to organise gambling in Estonia. The operating permit grants the right to open a gambling gaming location at the address indicated on the permit, aboard a ship, or to organise gambling as remote gambling.

An operating permit can only be applied for by a company that has already been issued an activity licence for organising gambling of the corresponding type of gambling in Estonia (except the lottery).

The operating permit can be applied for the provision of games of chance (including poker tournaments), an additional game of chance, a toto, games of skill and a lottery with a winning fund of more than 1000 euros. The operating permit must be applied for separately for each type of game and gaming location. In order to determine which type of gambling you need to apply for a license for, please read the descriptions of the types of games.

Only a public limited company whose share capital amounts to at least 1,000,000 euros and all of whose shares are held by the Estonian state may apply for a lottery operating permit for a lottery with a prize pool of over 1000 euros. You do not need to apply for permits to organise a lottery with a prize pool of less than 1000 euros.

There are no harmonised requirements for the organisation of gambling in the European Union. This means that an activity licence obtained from another European Economic Area country does not give you the right to provide gambling in Estonia or to apply for an operating permit here and vice versa.

A land-based operating permit must be applied for if you wish to arrange gambling at a specific address or aboard a ship.

The company must have been granted permission to open a gaming location for a game of chance, toto or game of skill by the rural municipality or city government at the address indicated in the application. A land-based operating permit is granted for the period of time indicated in the written consent for the opening of the gaming location granted by the local rural municipality government or city government of the gaming location.

The operating permit for land-based games of chance and toto is granted only to a gambling operator whose electronic recordkeeping and control system is properly connected to the information system of the Estonian Tax and Customs Board.

The operating permit for land-based games of chance, toto and classical lottery is granted only to a company that has tested its connection to the list of persons with restrictions on gambling.

In order to obtain a land-based operating permit, the application form must be filled in and the documents listed in the Annex must be attached to the application. 

Before submitting the application, the company must pay the state fee.

An operating permit for remote gambling must be applied for if gambling is to be organised where the outcome of the game is determined by an electronic device and the player can participate in the game by electronic means of communication, including telephone, Internet and media services. Additional information about the concept of remote gambling

The application form for a remote gambling permit must also be submitted if a toto is to be organised where the bet is accepted from the players and the winnings are paid out by electronic means of communication.

An operating permit for gambling is issued separately for organising a separate type or sub-type of gambling in the form of remote gambling. A permit for organising remote games of chance and a toto operating permit shall be issued only to a gambling operator whose electronic recordkeeping and control system is duly connected with the information system of the Estonian Tax and Customs Board.

An authorisation to organise remote games of chance, a classical lottery and a toto shall be issued only to a company that has a tested connection to the list of persons with restrictions on playing games of chance. 

It is possible to apply for a remote gambling permit for more than one Internet site with one application. The operating permit for organising a remote gambling game of chance, lottery and game of skill is granted for up to five years. A permit for a toto is granted for up to 20 years.

In order to submit an application for a permit to organise games of chance, toto or games of skill as remote gambling, the application form must be filled in and the documents listed in the Annex must be attached to the application.


Please also read the terms and conditions for organising remote gambling, compliance with which is mandatory.

Terms and Conditions for Organising Remote Gambling (in Estonian) | pdf

Before submitting the application, the company must pay the state fee.

Application form for the organization of land-based games of chance, toto or games of skill: 


Application form for the organisation of games of chance and lotteries, games of skill or toto offered as remote gambling:

Before submitting an application, the company must pay the state fee of 3200 euros, except in the case of an application for an operating permit for the lottery, the review of which will be subject to a state fee of 640 euros.

The state fee can be transferred to the following bank accounts of the Ministry of Finance:

SEB – IBAN EE 89 1010 2200 3479 6011
Swedbank – IBAN EE93 2200 2210 2377 8606
Luminor Bank – IBAN EE 701 7000 1700 1577 198

The reference number must be indicated on the payment order: 2900082919.

An application may be submitted:

The Estonian Tax and Customs Board shall take a decision on granting or refusing to grant an operating permit within two months after receipt of all the necessary documents and information, but not later than within four months after receipt of the application for an operating permit.

You will be informed of the issuing of the activity licence by e-mail or via the e-services environment of the Estonian Tax and Customs Board. The activity licence is issued electronically.

The gambling operator shall immediately inform the Estonian Tax and Customs Board about all changes in the information submitted for obtaining the operating permit. Additional information about the obligations of the gambling operator.

Independent experts accepted by the TCB

  • An independent expert must possess the technical readiness and recognised competence in order to assess the conformity of the gambling machine and the software used in the organisation of remote gambling.
  • The compliance of an independent expert is ensured in the case of an institution, person, company or laboratory that holds ISO/IEC 17025 accreditation recognised in the European Union.
  • An expert is independent if the assessment he or she has provided is not influenced by the manufacturer of the gambling machine/software, the operator or the importer, on either a personal or economic level, in such a way that the result of the assessment may depend on it.

In order to add the company to the list of independent experts accepted by the Estonian Tax and Customs Board, please send a copy of the ISO/IEC 17025 accreditation and an application to the address hasart@emta.ee, in which you confirm that you have reviewed the terms and conditions set out in the Estonian Gambling Act and are ready, on the basis thereof, to conduct expert analyses.

Additional information hasart@emta.ee.

Last updated: 28.10.2022

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