Responsibly Gambling
UK’s New Online Gambling Regulations for 2025 Explained
We also received evidence from charities that people facing challenges like social isolation or cognitive dysfunction (such as following a brain injury) could be particularly attracted to remote gambling opportunities and fail to understand or properly assess the risks. This would prevent slots play where there is an elevated risk of rapid losses and/or harm, while leaving the majority of customers who play at low stakes unaffected. This creates compliance risks and potential harms for those experiencing problem gambling and affected others. Individual operators can take steps to prevent harm on their own platform, but people suffering gambling harms often hold multiple accounts. The Gambling Commission will consult on new obligations on operators to conduct checks to understand if a customer’s gambling is likely to be harmful in the context of their financial circumstances.
Some lotteries including large society lotteries and licensing authority lotteries are licensed by the Gambling Commission, while small society lotteries must register with a licensing authority. Some respondents pointed to the relatively high test purchasing scores for licensed gambling premises compared to those for the sale of other age-restricted products. There was limited evidence to suggest these measures would materially improve on the current rules, which allow operators to verify age and identity via background checks that are effective in the vast majority of cases and are minimally disruptive to the customer. Bacta argued that further restrictions on children’s access to Category D machines was unnecessary, drawing attention to its voluntarily imposed 18+ age limit for playing Category D cash payout slot machines and measures in its charter that limit access and appeal to children. Evidence came from a wide range of respondents including industry, charities, researchers, campaign groups, Parliamentarians and local authorities. One of the few longitudinal studies of gambling behaviours in the UK found that patterns of problem/moderate risk gambling can often be established by 20 years of age.
A common theme in these responses was the need for a ‘precautionary’ approach to the regulation of advertising, arguing that the absence of evidence of harm must not be treated as evidence of an absence of harm. The differences in regulation for gambling advertising in broadcast and online channels are particularly noteworthy. Although the IGRG code is an industry code, compliance with it can be considered alongside compliance with the Gambling Commission’s own rules when the regulator is assessing an operator’s suitability to hold a licence. The code bans most broadcast gambling advertising before 9pm, with the exception of bingo and lotteries, and sports betting advertising in the build up to and after (but not during) a live sporting event. Additionally, the trade bodies representing the gambling industry have developed the Industry Code for Socially Responsible Advertising (‘IGRG Code’), which was last updated in October 2020. The Gambling Commission also sets some specific rules on how gambling operators advertise through its Licence Conditions and Codes of Practice.
From the early days of underground gambling to the modern era of licensed casinos and online gaming, the UK has continually adapted its regulatory approach to meet the needs of a dynamic and evolving industry. Each category is permitted in specific types of premises, with Category A and B1 machines available “only in the highly regulated environment of casinos“. These casinos were licensed by the Gaming Board of Great Britain and had to operate as members-only clubs where no more than 10 gaming machines could be installed. Given the largest cost to business is purchasing and installing new gaming machines, which is linked to the overall size of casinos, the IA explains that this cost is likely to increase with the size of the business.
This includes lotteries, betting on sports and horse races, bingo, as well as gaming machines at pubs and land-based casinos. We do not see this as being an issue for operators or manufacturers as it is already widely available on Category B gaming machines within all land-based gambling premises. While it is acknowledged that the risk of gambling harm may increase somewhat following a transition to 50/50, the stipulation outlined in Option 2 would ensure that operators offer a balance of higher and lower stake gaming machines.
Starting 29 July 2026, a new licence condition will require land-based gambling operators to remove gaming machines deemed non-compliant by the Commission. The changes made enable the holder of a converted casino premises licence relating to premises in England and Wales to make up to 80 gaming machines (including Category B gaming machines) available for use, provided a number of specified conditions are satisfied (“the extended entitlement”). Bacta (the trade organisation for family entertainment centres, adult gaming centres, operators and manufacturers), proposed the live-testing of concepts for new machines so that industry, the Gambling Commission and government could gather evidence on the potential gambling harms and mitigations. Currently, gaming machines can only be linked in casinos — and only sub-category B1 machines on the same premises — with the maximum prize set at a double that for a non-linked sub-category B1 machine.
With technological developments, land-based casinos have been able to introduce a greater range of customer protections and the experiences of applying these across each type of licence have provided insight on the likely impact of any proposed changes. Since the Gambling Act 2005, land-based casinos have operated under two licensing regimes with different requirements in terms of the type and volume of product they are able to offer, as well as venue size. Illegal operators often try to subvert the system, including on player protection requirements, and this move will further strengthen the regulatory environment protecting those most at risk of harm. In a move aimed at supporting those who may be suffering harm or in the grip of addiction, gambling operators will now be required to do more to protect customers. We will consult on the protections needed for gaming machines to be able to accept cashless payments directly.
Particular concern was raised in some submissions to the call for evidence that free bets or other promotional offers might encourage harmful engagement with gambling both in the present, and following a period of abstinence, and this was reflected in some of the most robust evidence available. Online gambling operators, like many other technology firms, have developed sophisticated means of segmenting their audience and keeping key customers engaged. The same study found a similar but much less pronounced trend for other advertising (influencing 3% of the ‘non-problem/low-risk’ group versus 9% of the ‘moderate/problem’ group), indicating the particular risk posed by direct marketing to those who are experiencing harm from their gambling.
The 2023 White Paper triggered the biggest round of gambling law changes since the Gambling Act 2005. These are the milestones that still shape gambling policy and oversight today. British gambling legislation has been rewritten several times since 1960, usually when technology outgrew the old rules.
Branded ‘safer gambling’ ad spots containing calls to action such as ‘enjoy award-winning online casino safely’ were also heavily criticised. Most responses to our call for evidence agreed that awareness-raising campaigns have a role to play in mitigating gambling-related harms, but there was a lack of consensus on the most appropriate way to design and implement them. However, this effect was more pronounced amongst participants not at risk of gambling-related harms, and those in the ‘moderate risk’ and ‘problem gambler’ categories had significantly lower comprehension scores overall. It was also suggested that point of purchase messaging could also be used to communicate a wider range of risks including potential health harms. However, many respondents to our call for evidence thought this was inadequate to ensure informed consumption of potentially risky gambling products, particularly high volatility slots games. In addition, the distinct responsibilities and activities of affiliates would require an entirely new licensing regime to be created; and the size of the sector means that it would distort the Commission’s remit, which concentrates on gambling operators themselves.
Regulator data shows that there is broadly a good standard of compliance with the existing advertising regulations. Many outdoor media owners therefore apply a ‘100 metre rule’, meaning they will not place certain ads, for example those that promote age-restricted products such as gambling, alcohol or e-cigarettes, within 100 metres of a school boundary. It also requires mandatory inclusion of safer gambling messaging, and has been updated to include the use of adtech to ensure social media ads are only targeted to users aged 25 and over where age verification is not in place, and that ads do not appear where keyword searches suggest vulnerability. The Committees of Advertising Practice (CAP), which set the rules which the ASA enforces, maintain and periodically update a dedicated broadcast and non-broadcast code (which also applies to out-of-home advertising, such as posters and billboards) for gambling and lotteries products. However, the continual growth of gambling marketing since 2005 has not resulted in an increase in gambling participation rates, which were higher overall prior to the Act’s implementation, or in population problem gambling rates which have remained broadly stable.
All operators must also adhere to our Licence Conditions and Codes of Practice (LCCP). Our guidance summarises the legal background and legislation which operators must follow to be compliant. The NRA sets out the key money laundering and terrorist financing risks for the UK. HM Treasury and the Home Office have published the national risk assessment (NRA) of money laundering and terrorist financing 2020 (opens in new tab).
Energy costs per machine will be estimated in the final stage impact assessment using an energy calculator. A more detailed estimate of the impact for each option will be presented in the final stage impact assessment, once further data has been collected. This increase is expected to be higher under Option 1 than Option 2, as operators will not be restricted by device constraints. Data on net expenditure per session shows that from April to September 2019, the vast majority of sessions across all machine categories ended in the player either winning money or losing up to £20. A ‘mixed session’ is a single session that takes place on games of different machine categories. Unlike Option 1, it would be much more difficult for an operator to increase the number of B3 cabinets on their premises by increasing the number of Category C or D in-fills and tablets that they site.
Moreover, 85% of land-based gamblers reported that paying via a cashless payment method (such as debit card or contactless play via mobile phone) made it easier to spend more than originally intended. This would likely affect the future viability of land-based venues, which support jobs and have been adversely affected by the pandemic. In addition to this, research commissioned by Bacta showed that in 2018, seaside arcades alone contributed £451m in UK GVA, and were responsible for employing around 19,000 people. In the Gambling Commission’s industry statistics published in May 2020, it was estimated to employ approximately 80,500 people.
Firstly, much of the available data on children being able to access age restricted forms of gambling comes from their own self-reporting which may be unreliable. However, evidence suggests that some children are still able to participate in gambling which they should be barred from. It should create a clear distinction between gambling products for adults and lower risk products for children which have non-cash prizes or (like a penny pusher) are entirely unlike an adult gambling product. Although we will consult further on the details of our proposal above, slot machines in FECs which are legally adult-only (Category C machines) are required to be in a segregated part of the venue to prevent children accessing those machines. Category D machines which do not pay out cash will not be subject to the increase in the minimum age to play. We welcome Bacta’s voluntary commitment, but to ensure all operators comply with it, we propose to move that requirement into legislation, making the legal minimum age to play cash-out Category D slot machine style games 18 years old.
Independent reviews, expert guides, and trusted ratings of the best UK online casinos. Online casinos, sportsbooks, poker rooms, lottery-betting and bingo sites. Online casino operators now pay 40% tax on gross gaming revenue, rising non gamstop from 21%. Oliver is a UK-based online casino analyst with over 12 years of experience in reviewing and comparing Gambling Commission–licensed platforms.
Permitting outdoor bingo events to be held in a car park adjacent to bingo premises would be problematic, as it is likely that the boundary or perimeter of the licensed area would only be delineated by temporary structures, or structures insufficient to fully supervise access to the area, for example by children. We therefore do not think there is a justification for licensed bingo premises to offer bingo via social media. Extending licence conditions to allow remote and outdoor bingo in venues, extending default playing hours for bingo These risks include playing a game faster than intended or spending more money than originally intended. As set out in section 1.3, the Gambling Commission will be looking at online product design rules, which may include consideration of the rules around concurrent play of multiple products.
If licensing authorities do not feel like they have the powers they need, we would like to know whether any changes could be made to the regulatory framework to address this issue. Therefore, we would like to understand whether licensing authorities consider that they have the powers they need to ensure that the current rules can be adequately enforced. Data was also provided on the increase in session times at busy periods in a 1968 Act casino, compared to a 2005 Act casino of comparable size.
With increased resources in due course, the Commission plans to invest in its data systems in order to better understand consumer behaviour and operator compliance. It is supported by existing powers in the Gambling Act for the Commission to make data requests as part of its regulatory activities. It has indicated, including in a speech by its Chief Executive to the GambleAware conference in 2021, that repeated failings are an aggravating factor and tougher action will be taken against repeat offenders.
Wiggin extends its reach to the centre of European decision-making, maintaining a Brussels office that advocates for clients on various EU-related issues, including copyright, audio-visual regulations, data protection, competition policy, trade and e-commerce. The firm serves a diverse clientele, ranging from industry leaders in broadcast entertainment, music, sports and publishing to innovative platforms, content retailers, gaming and technology companies, as well as budding entrepreneurs. He is experienced in advising clients on regulatory compliance matters, licensing and product classification, seeking M&A regulatory approvals and cross-border jurisdictional risk. He advises many of the industry’s leading operators and suppliers, as well as start-up companies, investors and other leading law firms.
With the current evidence base, we do not support the prohibition of all Category D machines such as crane grabbers and coin pushers for under 18s. There is currently no substantive research or evidence clearly identifying harms resulting from general Category D machine play. Based on evidence submitted to the call for evidence we estimate that those that pay out money (known as “cash-out Category D slot machines”) currently account for approximately two thirds of Category D slot style machines. The economic value of FECs, which rely heavily on Category D machines, was highlighted in responses to our call for evidence.
There is extensive gambling regulation in Great Britain, mostly imposed upon licensees by the various conditions and codes of practice attached to their gambling licences, which are colloquially referred to as the “Licence Conditions and Codes of Practice” or “LCCP”. This instrument brought the British system into line with various of the European so-called “regulated markets”, where the requirement to obtain a licence for that market and account for gambling duty extends to remote providers of gambling outside the jurisdiction. This so-called “point-of-supply” legislative scheme was reversed (in the case of remote gambling) by the Gambling (Licensing and Advertising) Act 2014, which converted the British system into a so-called “point-of-consumption” regime, which criminalised any person in any jurisdiction who makes available facilities for gambling to British players on a remote basis without British licences. Originally the Gambling Act 2005 applied only to those persons who had a physical connection with Great Britain; for example, land-based gambling businesses located in Great Britain or items of remote gambling equipment located in Great Britain. If you need support, our responsible gambling UK guide lists free resources including GamCare and BeGambleAware.
The responses received from the third sector also raised concerns about the potential for increased gambling-related harm to occur alongside greater numbers of Category B machines being made available. One operator, under both options, stated that it would increase the number of Category B cabinets machines by 2 to 3 per venue, while removing the vast number of smaller in-fill gaming machines. Evidence provided for Option 1 suggests that increases in Category B cabinet gaming machines would be moderate in the short-term. The arcade sector similarly reported that Option 1 and Option 3 would result in the removal of underused Category C and D machines, whilst Option 2 would have no impact or result in increased numbers of Category C and D gaming machines. This relates primarily to underused Category C and D gaming machines.
Beyond the 10x wagering cap, the new rules require casinos to display all bonus terms clearly and in plain language before a player opts in. All UKGC-licensed casinos must offer deposit limits, loss limits, session limits, and wager limits. Responsible gambling sits at the heart of the UK casino regulations 2026. To understand exactly what to look for, read our guide on how to choose a UK online casino.
