Brazil advances towards a deep reform of the lottery system
Brazil is considering fundamental changes to its lottery model. Federal deputy Fausto Pinato presented Bill 5,931/2025 in the Chamber of Deputies, a proposal that modernizes the regime for physical sales points, redefines income distribution, and seeks to balance operations between in-person and digital channels in a market increasingly impacted by online gambling and the widespread use of Pix.
A structural overhaul of the lottery permit
Bill 5,931/2025 reformulates Laws 12,869/2013 and 13,177/2015, expanding the scope of the permit to operate lotteries. Under this proposal, any concessionaire, whether an individual or legal entity, must be authorized to market all federal modalities, both in-person and digitally, and also provide services delegated by Caixa Econômica Federal (CEF).
The text emphasizes that the activity must guarantee:
- Financial sustainability of the sales point
- Adequate remuneration
- Compensation mechanisms for operational failures, especially in technological systems
New income scheme and operational distribution
One of the central issues of the project is the redesign of how money from lottery sales is distributed, especially those marketed online, a segment that has grown rapidly in recent years.
The bill determines that concessionaires will receive at least 50% of the amount allocated to cost and logistical maintenance. This percentage will be divided into two parts:
- 50% proportional to the volume of in-person sales of each point
- 50% distributed equally among all active units, according to a monthly register by Caixa
Additionally, the project establishes a new distribution of the general operational cost:
- 9.5% of the gross revenue for Caixa
- 9.5% for the lottery network
- 1% for the Lottery Development Fund (FDL)
This 1% would also be divided equally between Caixa and the concessionaires, and Pinato proposes granting the network representation in the management of the FDL, effective since 1981.
Financial costs arising from electronic payments, such as card commissions or digital liquidators, would be shared equally between Caixa and the lottery network.
Extended concessions: 25 years plus 25
One of the most significant changes is the extension of concession terms. According to the final version of the project, permits will be valid for 25 years, with automatic renewal for another 25 years, except in cases of contractual breach. The idea is to offer predictability and legal security to encourage investments in the physical network.
Equal rules for physical and digital channels
The text also reinforces the need for any new Caixa regulation to apply simultaneously to both channels. This would prevent lottery products from being launched exclusively online, leaving physical sales points at a competitive disadvantage.
Likewise, the bill authorizes lotteries to provide ancillary services for public or private entities, expanding their community and financial role.
The impact of Pix and online gambling: the reason behind the reform
In the project's justification, Pinato points out that the widespread adoption of Pix drastically reduced the in-person customer flow, generating a “severe economic-financial imbalance” for physical agencies. The growth of online gambling, he states, further deepened this gap.
“Lottery sales points are not just businesses; they are social and economic structures of community support,” explained the deputy.
“Updating the legislation is essential to guarantee their survival and ensure fair remuneration in a market dominated by digitalization.”
Next steps
Bill 5,931/2025 will be debated in the thematic committees of the Chamber of Deputies. After this technical and political analysis, it may proceed to the Plenary for potential voting.
Tags: Brazil, Brazil lotteries, Law 5.931/2025