The legalization of casinos in Brazil has been a recurring topic in the National Congress, reigniting debates about its economic, social, and regulatory impacts. The expected approval of Bill 2,234/2022 by the Senate in 2025, which proposes the regulation of gambling and betting activities in the national territory ("Project"), brings to the forefront the need for a deeper discussion on how such regulation could transform the tourism sector and boost the country’s economic development.
The legalization of casinos could represent a major step forward for the tourism industry, which already accounts for a significant portion of Brazil’s GDP and holds the potential for even greater growth.
The Project proposes a controlled concession model, establishing clear rules for the operation of casinos within integrated leisure complexes (high-end hotel accommodations, with hotels of at least 100 rooms — “Integrated Resorts”) or on vessels specifically built for this purpose.
The goal is to create a regulated and safe environment for investors and tourists, ensuring transparency, fiscal oversight, and the mitigation of social risks such as gambling addiction and financial crimes.
The direct impact of legalizing casinos can be seen through job creation within the tourism supply chain and the economic boost to tourist cities. International experiences indicate that this sector has the potential to create hundreds of thousands of direct and indirect jobs, driving activities such as (i) lodging services, (ii) food and entertainment, (iii) local commerce and handicrafts, and (iv) ground transportation and tourism logistics.
In addition, the presence of Integrated Resorts can extend tourist stays in Brazil, increasing the consumption of goods and services and strengthening the tourism value chain.
When it comes to domestic investments and/or attracting foreign capital, casino regulation can turn Brazil into an attractive destination for international investors in the entertainment and hospitality sectors.
Major global conglomerates that operate tourism enterprises in Las Vegas, Macau, and Singapore have already expressed interest in the Brazilian market, provided there is a solid legal framework.
By creating a favorable business environment, Brazil could attract billions in investments in tourism and urban infrastructure, encouraging the development of new regions and decentralizing tourism, which is currently concentrated in just a few hubs.
Casino regulation not only boosts tourism but also promotes a redistribution of revenue that can be allocated to sustainable sector development. A portion of the taxes collected from this activity can be directed toward tourism infrastructure projects, workforce training, and the promotion of lesser-known destinations.
Furthermore, a well-structured model can ensure that a significant share of revenue is allocated to social programs, public health, and responsible gaming initiatives, thereby broadening the benefits to society as a whole. Regarding responsible gaming initiatives, a control mechanism model can be implemented, including betting limits for certain player profiles and awareness campaigns about compulsive gambling.
In terms of sustainability, international experience shows that Integrated Resorts can adopt sound environmental practices, such as the use of renewable energy, efficient water management, and social impact programs.
Casino regulation in Brazil is not merely an economic issue — it is also a strategy to strengthen tourism and modernize the entertainment sector. With a well-structured regulatory framework, it is possible to ensure legal certainty, attract investment, and expand the positive impact on national development.
Brazil has already made significant progress in regulating online gaming and betting, with the recent publication of standards by the Secretariat of Prizes and Betting of the Ministry of Finance. This marks a major step forward in regulatory modernization, introducing robust compliance requirements, market integrity safeguards, consumer protection measures, and anti-money laundering protocols. Ignoring this evolution and passing a physical casino law disconnected from this reality would be a contradiction.
Ideally, the legal framework for casinos should align with the guidelines already established for the digital environment, ensuring an integrated and effective approach to the entire gaming ecosystem in the country.
The current challenge is to build a regulatory model that balances economic, social, and tourism interests, ensuring that the sector becomes a sustainable growth engine for the country. Moreover, responsible gaming policies must remain a priority for lawmakers and operators alike, providing player protection mechanisms and preventing negative social impacts.
Bruno Cação Ribeiro
Head of the Hospitality, Travel & Leisure Legal Practice
Fernanda Meirelles de Oliveira Leite
Head of the Media & Gaming Legal Practice
