Understanding EU Gambling Regulations: A Complete Legal Reference

The EU Gambling Regulatory Landscape in 2025

The European Union does not operate under a unified gambling license or single regulatory framework. Instead, each of the 27 EU member states maintains sovereign authority over its gambling regulations, creating a complex patchwork of national laws, licensing requirements, and enforcement mechanisms.

While the Treaty on the Functioning of the European Union (TFEU) establishes fundamental freedoms that member states must respect, individual countries retain the right to organize gambling services according to their own legal traditions, cultural values, and public policy objectives. This results in significant variation across Europe—from highly liberalized markets to strict state monopolies.

Market Size and Growth Trajectory

The European gambling market reached €123.4 billion in total gross gaming revenue in 2024, with projections indicating growth to €127.7 billion in 2025, representing a 3.5% year-over-year increase. Online gambling continues its rapid expansion, accounting for 39% of total revenue in 2024 (€47.9 billion) and expected to reach 40% by the end of 2025.

Casino games dominate the online sector, contributing 45% of online gross gaming revenue, followed by sports and event betting at 29%, lottery products at 15%, and poker and bingo at 3% each. Mobile platforms drove 58% of all online gambling revenue in 2024, up from 56% the previous year, underscoring the shift toward mobile-first gambling experiences.

National Regulation vs. EU-Level Coordination

There is no single EU-wide gambling license. Operators must obtain separate licenses from each country where they wish to offer services. This fragmented approach means that a company licensed in Malta cannot automatically offer services in Germany or France without obtaining additional country-specific authorizations.

However, EU-level regulations do exist in adjacent areas that affect gambling operations:

• Anti-Money Laundering (AML) Directives: The EU's AML package, including the new Anti-Money Laundering Authority (AMLA) established in July 2025, sets minimum standards for customer due diligence, transaction monitoring, and suspicious activity reporting.
• Consumer Protection: General EU consumer rights legislation applies to gambling services, particularly regarding fair terms, transparent advertising, and dispute resolution.
• Data Protection: The General Data Protection Regulation (GDPR) governs how gambling operators collect, store, and process personal data.
• Payment Services: EU payment regulations affect how funds can be transferred to and from gambling accounts.

The AMLA and Enhanced AML Enforcement

The Anti-Money Laundering Authority commenced operations on July 1, 2025, with headquarters in Frankfurt. This new EU-level supervisor directly oversees high-risk financial institutions and coordinates with national supervisors, particularly in cross-border cases. AMLA has authority to impose fines of up to €10 million or 10% of annual turnover, whichever is higher.

For gambling operators, enhanced Know Your Customer (KYC) and Customer Due Diligence (CDD) requirements now apply at the €2,000 threshold for single or linked transactions. Regulators across Europe are strengthening enforcement, with recent actions including a €3.5 million fine imposed on a neobank in Lithuania in March 2025 for AML deficiencies.

Regulatory Models Across the EU

EU member states employ different regulatory approaches to gambling, which can be broadly categorized into several models:

1. Licensed Competitive Markets

Countries like Germany, Spain, Malta, and Denmark allow multiple private operators to compete after obtaining national licenses. These markets feature:

• Open application processes for qualified operators
• Regulatory oversight by independent authorities
• Tax regimes based on gross gaming revenue or turnover
• Strict compliance and responsible gambling requirements

2. State Monopolies

Finland and Norway maintain state-owned monopolies controlling all or most gambling activities. These countries restrict private operators through:

• Exclusive state-controlled entities (e.g., Veikkaus in Finland)
• Payment blocking for unlicensed foreign operators
• Channel all revenues to public causes and social programs

Finland announced plans in March 2025 to transition from its monopoly system to a licensing regime, though implementation timelines remain uncertain.

3. Partial Liberalization

Some countries, like France, allow private operators for certain verticals (sports betting, poker) while prohibiting others (online casino games). This hybrid approach creates:

• Vertically segmented markets with different rules per product type
• State monopolies for lotteries alongside licensed private betting
• Ongoing policy debates about further liberalization

4. High-Barrier Markets

Countries like Poland and Greece impose high licensing fees, restrictive conditions, or limited license availability that effectively restrict market entry:

• Italy: New nine-year online gambling licenses cost €7 million each, the highest in the EU, plus 3% annual tax on net revenue
• Greece: High licensing fees and 35% gross gaming revenue tax
• Poland: Only state-run Totalizator Sportowy may operate online casino games; private operators restricted to betting

Common Regulatory Requirements

While specific rules vary, most EU jurisdictions share certain core requirements for licensed gambling operators:

Advertising and Affiliate Marketing: A Tightening Landscape

Gambling advertising regulations have become significantly stricter across Europe in 2025, with several countries implementing comprehensive bans:

• Belgium: Broad ban on gambling advertising since 2023
• Lithuania: General advertising ban from July 1, 2025, with full enforcement by 2028; no-hyperlinking rules effectively eliminate affiliate marketing
• Italy: Strict advertising prohibitions with limited promotional options
• Netherlands: Default advertising ban unless operators meet enhanced standards; affiliates must prove 95% of audience is 24+ years old; no use of celebrities, athletes, or influencers

Countries allowing regulated advertising—such as Denmark, Germany, Sweden, and Spain—impose strict content, timing, and placement requirements. Affiliates must ensure all promotional content includes complete terms and conditions, responsible gambling messages, age restrictions, and avoids misleading claims about "no deposit" or "free spins" offers.

Payment Restrictions and Banking Blocks

Several EU countries actively block financial transactions to unlicensed gambling operators as an enforcement mechanism:

• Germany: Maximum monthly deposit limits and payment blocking for unlicensed operators
• Netherlands: In 2025, tightened controls including blocking payment providers from processing transactions to unlicensed platforms
• Lithuania: Payment blocking infrastructure for unauthorized operators

These measures create significant operational challenges for unlicensed operators and serve as deterrents against offering services without proper authorization.

CS2 Skin Gambling and Esports Betting

The intersection of Counter-Strike 2 (CS2) skin gambling and regulatory frameworks represents a complex gray area across the EU. While esports betting through licensed operators is generally legal where sports betting is permitted, skin gambling—using in-game cosmetic items as currency on third-party platforms—exists in a regulatory limbo.

Key regulatory concerns include:

• Underage Access: Skin gambling platforms often lack robust age verification, creating youth protection risks
• Consumer Protection Gaps: Unregulated platforms may not provide fair gaming guarantees, dispute resolution, or responsible gambling tools
• Licensing Ambiguity: Most skin gambling sites operate without gambling licenses, arguing they deal in virtual items rather than traditional currency

In December 2025, Valve updated its tournament policies to prohibit CS2 teams from displaying skin betting and case-opening website logos on jerseys during official events, reflecting growing pressure from regulators. The EU Parliament has proposed classifying skin trading under digital asset laws, potentially requiring licensing similar to traditional gambling platforms.

Recent Regulatory Changes (2024-2025)

Exploring Individual Country Regulations

This reference guide provides detailed breakdowns of gambling regulations for each of the 27 EU member states. Visit our Country Index to access in-depth information on:

• Legal status for online and land-based gambling
• Licensing authorities and application processes
• Permitted gambling products (casino, sports, poker, lottery)
• Player legality and restrictions
• Advertising and affiliate marketing rules
• Payment restrictions and banking policies
• Enforcement mechanisms and penalties
• Responsible gambling obligations and self-exclusion systems
• CS2/skin gambling considerations where applicable

Additional Resources

To better understand the terminology and concepts used throughout this guide, consult our comprehensive glossary covering terms like RTP (Return to Player), KYC (Know Your Customer), AML (Anti-Money Laundering), licensing models, self-exclusion systems, and more.

For specific information about esports betting and skin gambling regulations, see our dedicated CS2 & Skin Gambling guide, which explores the legal gray zones, consumer protection concerns, and country-specific approaches to regulating gambling-like mechanics in video games.

Keeping Information Current

Gambling regulations evolve rapidly. We update this reference guide regularly to reflect legislative changes, new licensing regimes, enforcement actions, and policy developments. However, given the dynamic nature of regulatory environments, always verify current information with official sources before making decisions.

Last Updated: January 2025