Germany Gambling Laws 2025: Complete Regulatory Guide

Legal Status Summary

Germany operates a regulated gambling market under the Fourth Interstate Treaty on Gambling (Glücksspielstaatsvertrag 2021), which came into force on July 1, 2021. This federal framework replaced a patchwork of conflicting state laws and established the Gemeinsame Glücksspielbehörde der Länder (GGL) as the central regulatory authority for all 16 German states (Länder).

The Interstate Treaty permits licensed operators to offer:

• Online sports betting (including live betting with restrictions)
• Virtual slot machines (online slots)
• Online poker (tournaments and cash games)

Online casino table games—including blackjack, roulette, and baccarat—remain prohibited under federal law. However, Baden-Württemberg operates a state monopoly through Toto-Lotto GmbH, which began offering online blackjack and roulette in February 2025 exclusively to residents of that state.

Land-Based Gambling

Land-based gambling is legal and well-established in Germany, including:

• State-run casinos (Spielbanken): Operated under state concessions; minimum age typically 21
• Slot machine halls (Spielhallen): Licensed by municipal authorities; subject to strict operating restrictions including maximum stakes and social distancing requirements
• Lotteries: State monopoly operated by 16 regional lottery companies under Deutscher Lotto- und Totoblock
• Sports betting shops: Licensed retail locations for terrestrial betting

The German gambling market generated €14.4 billion in gross gaming revenue in 2023, making it the third-largest in the EU after Italy and France. Online gambling accounts for approximately 28% of total revenue and continues to grow rapidly following the 2021 liberalization.

Regulators & Licensing Model

Gemeinsame Glücksspielbehörde der Länder (GGL)

The GGL, based in Halle (Saale), Saxony-Anhalt, commenced operations on January 1, 2023, consolidating regulatory functions previously handled by individual state authorities. The GGL has authority over:

• Issuing and revoking gambling licenses
• Monitoring operator compliance with the Interstate Treaty
• Enforcing technical requirements (e.g., payment limits, spin speeds, session reminders)
• Administering the OASIS self-exclusion system
• Imposing fines and penalties for violations
• Blocking unlicensed operators through payment provider restrictions and ISP blocking

As of January 2025, the GGL has issued over 130 online gambling licenses, including permits for sports betting, virtual slot machines, and online poker. License terms typically run for five years and are renewable upon compliance review.

Licensing Requirements

Operators seeking a German gambling license must demonstrate:

• Technical compliance: Integration with OASIS, deposit limit enforcement, session tracking, spin speed restrictions (5 seconds minimum for slots), and reality checks
• Financial stability: Proof of adequate capitalization and secure player fund segregation
• Responsible gambling measures: Mandatory reality checks every 60 minutes, panic button functionality, and responsible gambling messaging
• Data protection: GDPR compliance and secure storage of player data on German or EU servers
• AML/KYC: Customer due diligence at registration and for transactions exceeding €2,000

License holders must pay ongoing supervision fees and are subject to regular audits. The GGL has actively penalized non-compliance, issuing fines exceeding €50 million collectively to operators since 2023 for violations including inadequate reality checks, advertising rule breaches, and deposit limit circumvention.

What's Allowed

Online Gambling Products

Product-Specific Restrictions

Virtual Slot Machines: Subject to strict technical requirements including €1 maximum stake per spin, 5-second minimum interval between spins, prohibition of autoplay features, and mandatory loss limits. Jackpot games are permitted but must comply with stake and speed restrictions.

Sports Betting: Live in-play betting is permitted but restricted for certain event types. Betting on virtual sports and simulated events is allowed. Operators must implement measures to detect and prevent match-fixing and underage betting.

Online Poker: Both tournament and cash game formats are licensed. Operators must implement responsible gambling tools including session time limits and mandatory breaks.

Player Legality

German residents aged 18 or older may legally participate in online gambling through GGL-licensed operators. Players are not subject to criminal penalties for using licensed services, and winnings are generally tax-free for recreational players.

Playing on unlicensed platforms is not explicitly criminalized for players, but such activity is discouraged and unsupported by consumer protection mechanisms. The GGL actively blocks payments to unlicensed operators, and players using such sites risk loss of funds without recourse.

The €1,000 monthly deposit limit applies cumulatively across all licensed operators. Players attempting to circumvent this limit through multiple accounts face account closures and potential loss of funds. The GGL maintains centralized monitoring to enforce this restriction.

Cross-Border Play

German residents may legally access gambling services licensed in other EU countries under freedom of service provisions, though this is a gray area. The GGL takes the position that players should use German-licensed operators to benefit from local consumer protections. Non-German licensed operators are subject to payment blocking if they market to German players without a GGL license.

Advertising & Affiliate Rules

The Interstate Treaty imposes comprehensive advertising restrictions designed to minimize gambling exposure, particularly to minors and vulnerable individuals.

Advertising Prohibitions

• Broadcast restrictions: No gambling advertising on television or radio between 6:00 AM and 9:00 PM
• Sports venue bans: No advertising visible during live sporting events broadcast before 9:00 PM
• Targeting minors: Absolute prohibition on advertising directed at persons under 18 or using themes, imagery, or channels appealing to minors
• Celebrity endorsements: Generally prohibited if the celebrity has youth appeal
• Misleading claims: Prohibition on suggesting gambling as a solution to financial problems or promoting excessive participation

Mandatory Advertising Content

All gambling advertising must include:

• Clear age restriction notice (18+)
• Responsible gambling message
• Reference to gambling addiction support resources
• Warning about addiction risks

Affiliate Marketing

Affiliate marketing is permitted but subject to the same advertising restrictions. Affiliates must:

• Only promote GGL-licensed operators
• Include mandatory responsible gambling messages and age warnings
• Avoid targeting minors or vulnerable populations
• Ensure all bonus terms and conditions are clearly disclosed

The GGL has imposed significant fines on operators for non-compliant affiliate partnerships. Operators are held responsible for affiliate conduct, creating strong incentives for rigorous affiliate compliance monitoring.

Payments & Banking Restrictions

Germany enforces strict payment controls as part of its regulatory framework:

Deposit Limits

The €1,000 monthly deposit limit is enforced across all GGL-licensed operators through a centralized tracking system. This limit applies cumulatively—deposits at Operator A count toward the same €1,000 cap as deposits at Operator B.

Payment Blocking

The GGL maintains an updated list of unlicensed operators and works with payment service providers to block transactions to these entities. Banks and payment processors are required to implement technical measures preventing deposits to blacklisted gambling sites.

In 2024, German authorities expanded payment blocking to include cryptocurrency transactions, requiring crypto exchanges with German customers to screen gambling-related transfers.

Permitted Payment Methods

Licensed operators may accept:

• Credit and debit cards (Visa, Mastercard)
• Bank transfers and instant banking (Sofortüberweisung, Giropay)
• E-wallets (PayPal, Skrill, Neteller) where compliant with GGL requirements
• Prepaid vouchers (Paysafecard) subject to identification requirements

All payment methods must support identity verification and deposit limit enforcement.

Enforcement & Penalties

The GGL employs a multi-layered enforcement strategy targeting both unlicensed operators and non-compliant licensed entities.

Actions Against Unlicensed Operators

• Payment blocking: Mandatory blocking of financial transactions to blacklisted sites
• ISP blocking: Domain blocking orders requiring internet service providers to prevent access
• Advertising bans: Prohibition on advertising by unlicensed operators in German media
• Fines: Administrative fines up to €500,000 for operating without a license

Penalties for Licensed Operators

The GGL has issued substantial penalties for compliance violations:

• Fines ranging from €50,000 to €10 million depending on violation severity and recurrence
• License suspension for serious or repeated violations
• License revocation in cases of systemic non-compliance

Notable 2024-2025 enforcement actions include:

• €8.5 million fine for an operator that failed to implement adequate reality checks
• €5.2 million penalty for circumventing deposit limits through sister brand coordination
• Multiple six-figure fines for advertising rule violations

Responsible Gambling Tools & Self-Exclusion

OASIS: The Centralized Self-Exclusion System

OASIS (Overarching Blocking System for Gambling) is Germany's mandatory nationwide self-exclusion database, operational since October 2021. Managed by the GGL, OASIS allows individuals to self-exclude from:

• All GGL-licensed online gambling platforms
• Land-based casinos (Spielbanken)
• Slot machine halls (Spielhallen)

Players can register for OASIS exclusion online via the GGL portal or in person at participating gambling venues. Exclusions can be set for:

• Indefinite: Permanent exclusion requiring formal application to lift after minimum period
• Temporary: Minimum three-month exclusion periods

All licensed operators must check OASIS before allowing account registration or gambling activity. Violations result in immediate fines and potential license revocation.

Mandatory Responsible Gambling Features

GGL-licensed operators must implement:

• Reality checks: Mandatory session time and loss notifications every 60 minutes
• Panic button: Immediate self-exclusion option prominently displayed
• Deposit limits: Beyond the statutory €1,000 monthly limit, players can set lower voluntary limits
• Session limits: Optional time-based limits for gambling sessions
• Loss limits: Optional financial loss caps over defined periods
• Cool-off periods: Temporary account suspensions for 24 hours to 6 months

Problem Gambling Resources

Germany maintains extensive support infrastructure for problem gambling:

• BZgA (Federal Centre for Health Education): Operates the national helpline 0800 1 37 27 00 and provides free counseling
• Check-dein-Spiel.de: Online self-assessment and educational resources
• Regional counseling centers: Over 450 specialized addiction counseling centers across all 16 Länder

CS2 / Skin Gambling Notes

Germany's approach to CS2 skin gambling and esports betting is shaped by both federal gambling law and consumer protection principles.

Esports Betting

Betting on esports matches through GGL-licensed sports betting operators is legal and regulated. Major licensed operators offer markets on Counter-Strike tournaments, League of Legends, Dota 2, and other competitive gaming events. These bets are subject to the same regulatory requirements as traditional sports betting.

Skin Gambling

Third-party skin gambling platforms—where players wager Counter-Strike 2 skins on casino-style games, roulette, or match outcomes—operate in a legal gray zone. The GGL has not issued specific guidance classifying skin gambling as regulated gambling requiring a license, but several factors create risk:

• Youth protection concerns: Skin gambling sites often lack robust age verification, enabling minors to participate. German consumer protection authorities have investigated several platforms for youth protection violations.
• Unlicensed gambling argument: If skins are deemed to have monetary value (tradeable on Steam Market or third-party sites), skin gambling could constitute unlicensed gambling activity subject to enforcement.
• Payment blocking: The GGL has begun including known skin gambling sites in payment blocking orders, particularly those accepting direct monetary deposits.

In December 2025, Valve updated its tournament policies to prohibit CS2 teams from displaying skin betting and case-opening website logos during official events. This policy change, while not a legal requirement, reflects increasing regulatory pressure across the EU, including from German authorities.

Loot Boxes

Germany has not formally classified loot boxes as gambling. However, the BZgA has published educational materials warning about gambling-like mechanics in video games and their potential to normalize gambling behavior among minors. Legislative proposals to regulate loot boxes have been introduced but not yet enacted as of January 2025.

Sources & Further Reading

This guide is compiled from official regulatory sources, industry reports, and legal analyses. For the most current information, consult:

• Gemeinsame Glücksspielbehörde der Länder (GGL): www.ggl.de – Official regulator website with licensing information, compliance guidelines, and enforcement updates
• Interstate Treaty on Gambling (Glücksspielstaatsvertrag 2021): Full text available via GGL website
• OASIS Self-Exclusion Portal: www.oasis-verbund.de – Self-exclusion registration and information
• BZgA Gambling Addiction Resources: www.check-dein-spiel.de – Problem gambling support and self-assessment
• European Gaming and Betting Association (EGBA): Industry data and policy analysis

Frequently Asked Questions

Last Updated: January 2025