Everyone has heard that Brazil is a country full of paradoxes. We are one of the world’s leading food producers, yet we still struggle with hunger and food insecurity. We have one of the highest levels of income concentration on the planet, where a small portion of the population holds most of the wealth.
But we are also home to one of the greatest legislative contradictions in the world: the jogo do bicho.
Although it was banned in 1895 and criminalized across Brazil by decree-law since 1946, the jogo do bicho is present in every state of the federation, moving billions of reais with no oversight, regulation, or taxation. How can an illegal activity continue to operate in broad daylight for over 100 years?
One of the most memorable quotes from Eduardo Campos — former governor of Pernambuco and a great leader Brazil once had — is that we must not become too familiar with a problem; we must instead solve it.
And Bill No. 2,234/2022, which regulates responsible gaming and integrated resorts in the country, is that solution.
As the rapporteur of this bill in the Federal Senate, I am fully convinced that we are on the path to correcting this and many other paradoxes in our country. Because beyond the jogo do bicho, we are also talking about regulating and overseeing bingo halls, casinos, and other gaming modalities that currently operate freely and entirely outside the law.
Bill 2,234/2022 regulates gaming in a modern, safe, and responsible way, aligned with what is already being done in more than 70 countries — including strong democracies like the United States, Canada, France, the United Kingdom, Spain, and Australia, among others. The proposal includes the implementation of integrated resorts with casinos, bingo halls, the jogo do bicho, and betting, all properly licensed, monitored, and governed by strict rules for operation, addiction prevention, and anti-money laundering.
It is important to highlight that the bill deals exclusively with land-based gaming. These will be establishments with a fixed address, known headquarters, and controlled access, subject to ongoing inspection. Unlike digital betting platforms — the so-called “bets” — which operate online and can be accessed from anywhere, the games regulated under Bill 2,234 will take place in defined locations, with access control, player identification, and specific rules of operation. This ensures greater legal security, transparency, and social responsibility.
At the same time, the country is going through a moment of fiscal urgency and institutional trust-building. In this context, it is surprising that there is still resistance to approving a measure with immediate potential to generate jobs, attract investment, and raise billions in revenue for the Brazilian state.
It is estimated that the jogo do bicho alone moves R$27 billion (US$ 5bn) per year — an amount comparable to the budget of a medium-sized ministry. Meanwhile, we keep the doors closed to formal investment, officially registered jobs, and public revenue that could be allocated to health, education, and public safety.
The projections are compelling: over R$100 billion (US$ 18.5bn) in private investment in the coming years, 1.5 million direct and indirect jobs, and a positive impact on the national tourism GDP. Not to mention the tax revenue. Technical estimates indicate that the bill could generate over R$20 billion (US$ 3.6bn) annually in public revenue. And this money will not go into the federal government’s general fund: the proposal ensures specific allocations to critical areas such as public safety, sports, tourism, culture, and healthcare.
Given the importance of this issue for the country, the DataSenado conducted a survey in March 2024 on the regulation of gaming in Brazil. It was an extensive and thorough survey with 5,039 respondents.
The result was clear: the majority of the population supports the regulation of gaming. According to the survey, 60% of Brazilians are in favor of the proposal. This number rises to 73% among those who understand that it involves integrated resorts with convention centers, restaurants, shops, entertainment, and hotels. In other words: Brazilians want transparency, jobs, and development. And that is what this bill delivers.
Of course, the topic is not without controversy. But resistance to the proposal in the Senate is still fueled by ideological narratives disconnected from reality. Some mix faith with public policy, ignoring the fact that the role of a secular state is to regulate activities that already exist and require oversight — not to legislate bans based on personal beliefs. Even worse: by opposing regulation, these voices end up — even if unintentionally — complicit in maintaining the illegal gaming market, which continues without oversight, without taxes, and with its profits fueling corruption and violence.
Unfortunately, some lawmakers insist on distorting the facts. In their speeches, they repeat the false equivalence between regulation and the normalization of the activity, ignoring international examples and the technical reports that support the bill.
The proposal has already received favorable opinions from several ministries — Finance, Tourism, Social Development, and Labor — in addition to support from the National Confederation of Commerce (CNC), and representative entities such as Brazilian Association of the Hotel Industry (ABIH) and Confederation of Workers in the Hotel Industry (CONTRATUH). That is no small feat. It is the Brazilian State and society saying it is time to turn the page.
Opposition to regulation also contradicts the rhetoric of fiscal responsibility and public finance discipline. It is ironic that some of the most vocal critics of the proposal are the same ones demanding solutions to the public deficit. I ask: what other measure currently on the table is capable of generating immediate jobs, private investment, and billions in revenue without raising taxes or increasing public debt?
The answer is simple: there is none.
Bill 2,234/2022 is a real opportunity to modernize legislation, increase social control, boost tourism, and strengthen the national economy. This is not about “legalizing” gambling — it already exists. It is about bringing into the light what is currently in the shadows, ensuring that the activity is conducted with responsibility, legality, and a return to society.
The approval of this bill will not be a victory for a government, a lawmaker, or a political party. It will be a victory for Brazil. For the Brazil that wants to grow with legal certainty. For the Brazil that respects faith but legislates based on reason. For the Brazil that wants jobs, investment, dignity, and transparency.
It is time to take this historic step.
Irajá Silvestre
Senator of the Republic for the state of Tocantins and born in Goiânia (GO).
Rapporteur of Bill 2.234/2022
