Policy changes the public doesn’t want? The curious case of Finnish alcohol regulation

The THL- survey published in mid-March 2025 paints a clear picture: 54 per cent of respondents favor maintaining current alcohol regulations, and an additional 17 per cent advocate for even stricter controls. Despite this public preference for caution, Finland has witnessed a gradual yet persistent liberalization of its alcohol policies over the past decade.

One of the most critical issues in this debate is the idea to allow wine sales in grocery stores. Public support for this measure has declined from 54 per cent in 2022 to just 42 per cent in 2025. This trend signals a growing apprehension among Finnish people about the potential societal costs of deregulation. Nevertheless, these concerns have done little to deter political actors from pursuing policies that favor greater availability.

The driving forces behind liberalization

If the majority of Finnish people prefer restrictive alcohol policies, why does liberalization continue?  The answer lies in the interplay of political will, economic interests, and lobbying by interest groups.

Successive governments have framed deregulation as a means of promoting individual freedom and consumer choice. These arguments resonate with certain ideological perspectives that prioritize market-driven solutions over public health considerations. Alcohol sales generate substantial revenue, and allowing wine in grocery stores, for instance, opens new profit streams for retail chains which sounds like a tempting prospect in an economy constantly seeking growth. However, considering state revenue, the equation is a bit more complex. Privatization could increase state income if sales grow, but on the other hand, if monopoly sales decline or disappear, the state receives less money from Alko’s profits, and increased sales lead to more harm that the state must cover.

From liberalization to reflection

Since 1984, the THL survey has tracked the rollercoaster ride of public attitudes toward alcohol regulation, offering long-term insights into how opinions have evolved over the years. In 2015, a notable liberal peak saw 40 per cent of respondents favoring looser policies. Fast forward to 2025, and that figure has been halved to 20 per cent. Those who once championed liberalization have, to some extent, seen their wishes fulfilled: the sale of stronger beers and cider in grocery stores and other reforms have reshaped the regulatory landscape. It seems like the consequences of these changes, combined with a struggling health care sector, have prompted a reevaluation among the public.

What kind of policies are we getting?

For now, Finland seems to be following an alcohol policy path that aligns more closely with economic and political interests than with views of the public.

​The government has recently explored options to liberalize wine sales by allowing their sales outside Alko. In line with Petteri Orpo’s governmental program, Antti Neimala was appointed to lead a study assessing the potential for allowing wines with up to 15 volume percent alcohol content to be sold outside Alko’s monopoly. The study aimed to evaluate the implications of such a change on public health, market dynamics, competition, regulatory frameworks, and Alko’s operations. ​

The report outlines three models for expanding wine sales outside of Alko:

1. Selling wines in grocery stores:  This model would permit the sale of wines with up to 15 per cent alcohol content in regular grocery stores, increasing availability for consumers.​
2. Permitting wine sales in licensed establishments for off-premises consumption: Under this option, licensed venues such as restaurants and bars could sell wine for customers to take away, blending on-premises and off-premises sales.​
3. Allowing specialty shops to sell wine: This approach would authorize dedicated wine stores to operate independently of Alko, potentially fostering niche markets and specialized offerings.

These proposals all aim to enhance consumer choice and convenience. However, in addition to not being aligned with what a majority wants, the topic also remains politically sensitive, particularly for coalition partners like the Christian Democrats, who have opposed further alcohol reforms due to concerns about the consequences of increased availability and associated harms. A recent survey by Yle that reached 100 Members of Parliament also reveals that a majority oppose the sale of stronger wines in grocery stores.

The article is written by

Mikaela Lindeman, PopNAD-editor and senior planning officer at THL

&

Pia Mäkelä, research professor at THL