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Every year, hundreds of billions of dollars are spent in the global gambling markets, so it makes sense that governments are moving to legalize these businesses and take their cut of the action, rather than having their citizens send large sums of money to foreign economies.
This article provides an overview of online gambling regulations around the world. Despite having a unique set of licensing and regulatory authorities, we find that many countries actually have a lot in common when it comes to regulating the industry. For example, most approach the question of which forms of gambling to legalize by first determining whether the activity is primarily based on luck or, conversely, involves a significant degree of skill.
We see many instances where countries allow online gaming operations to exist in a sort of "gray area". The United States, Macau and Brazil are prime examples. In these nations, there is either no regulation of online gambling, or only web hosting within the nation's borders is prohibited - while the use of foreign options by the citizens of these countries remains uncriminalized.
When this guide is finished, it will provide a decent high-level overview of how the online gaming industry is expanding and developing around the world. We will look more closely at some of the thinking behind gaming law, highlight some of the different regulatory bodies and their functions, and have a clearer picture of the thinking behind the different licensing regimes.

Similar to many nations, our government could function better if it accepted and understood that online gambling is here to stay. We are pouring a massive amount of money into jurisdictions that choose legalized and regulated online gambling over the alternative. Let's take a closer look at how this industry fits into our society, with its economic impact and cultural influences, and where it might be headed.
Online Gambling: A Growing International Industry
It is an internationally recognized fact that Internet gaming is experiencing explosive growth. Between 2008 and 2018 the value of online gaming more than doubled, ending the decade at nearly $52 billion. Some analysts now believe that figure has since passed $60 billion. All of this indicates that the interests of people around the world are becoming more and more focused on online gambling.
The digital sector still lags far behind its terrestrial competitors, but there are some tectonic shifts taking place around the world that could very well affect our perception of the digital marketplace in the near future. The constant development of new technologies is at the forefront of this change.
China
Europe
Brazil
Another major benefit of legal gambling is that it allows a flow of money that would otherwise be funneled to organized crime to instead flow to the local economy and people. Currently, the Brazilian government has several bills working their way through Congress that will open their market to international investment and reopen the kind of legal gambling that was shut down in the 1940s.
In late 2018 Brazil passed a law allowing sports betting. However, the sportsbooks that can be found on the World Wide Web will have to wait another two years while the government works out how and under what conditions they can operate legally.
India
The only barrier to entry for foreign providers is the financial status of a large portion of the population. But this is changing rapidly. More people are getting regular access to the Internet every day, and that access is getting cheaper. Another major emerging global player is India, whose standard of living and purchasing power will continue to rise over the next decade - in all likelihood, until at least the middle of the 21st century.
Every day, that means hundreds of thousands more citizens using their mobile devices to connect to the Internet for a truly mobile online experience. This can only be good, it seems, for the burgeoning number of Internet gambling sites, both licensed and otherwise, that are now operating within the Indian states.
The United States
At the same time, Sheldon Adelson, a brick-and-mortar casino heavyweight, convinced the federal government to reinterpret the 1962 Wire Act, authored by Robert Kennedy, to apply to telephone and Internet gambling. This is a controversial interpretation to avoid reinterpreting a law that, as written, clearly says it was meant to cover only sports betting. But when you have hundreds of millions to spend to get your way, creative reinterpretations can usually be bought.
So, while one side of the industry in the United States looks very encouraging, another side is facing criticism. Nevertheless, it is to be hoped that over time most states will find it advantageous to adopt regulations and a licensing system so that they too can profit from a hardly disappearing activity, rather than funding companies in the borderlands.
Legal Gray Areas / Offshore Gambling Sites
Authorities on every continent are under increasing pressure to regulate the online gambling industry, as well as the recreational gambling sector as a whole.
Some countries experienced little disruption. These jurisdictions had regulations in place that were simply extended to online activities, applying the same level of restrictions that had previously been imposed on land-based operations. This exact scenario is most common in jurisdictions that impose government monopolies on gaming markets. In these places, little has changed with the advent of online gaming, and much has remained the same, as many operational restrictions have simply been extended to the Internet. Countries where this situation prevails include, but are not limited to: any jurisdiction with a state monopoly, a number of which exist in East Asia, for example, France, Italy, Norway, and also some jurisdictions in the United States.
Austria
Other situations were not so clear-cut, but lawmakers sprang into action, making definitive decisions about how to interpret older laws - either legalizing and regulating them or prohibiting them - or enacting new laws altogether.
Some places have tried to stop online gambling, even though they allow some forms of in-person gambling. Even in places that allow both online and land-based gambling, some laws may require operators to take a number of steps to ensure that gambling is conducted responsibly and legally. Even in these countries, the rules designed to protect people from gambling don't seem to be working very well. And then there are the many places where all of this is happening without any legal requirements.
United States
Enacted in 2006, the UIGEA aims to stop illegal online gambling in the United States. But instead of focusing on the individual gambler who chooses to gamble on offshore sites, the law seeks to control the owners of those sites and the U.S. financial institutions that serve them. It accomplishes this by directing U.S. banking institutions to stop all transactions between those institutions and any known gambling operation.
The federal laws that apply to players who want to gamble online are quite relaxed. As a player, you can't really bet in this country unless you use a site that is regulated in the state you live in or in most or all of the country, like a lottery. Federal law also says you can't take bets across state lines. But since online betting is largely a state and not a federal issue, there is no federal law that says you can't use interstate online betting sites.
Aside from these relatively minor regulations, there are fifty different gaming jurisdictions in the United States. Each state writes and enacts its own laws, designs its own licensing system, creates its own regulators, and decides what kind of gambling is - and is not - legal.
Following the Supreme Court ruling that struck down PASPA, the federal law that prohibited sports betting, just about every state in the union has either jumped into the sports betting pool or is considering it.
In most jurisdictions, the laws do not make it a crime for US citizens to use offshore gambling sites either. So we don't run into any illegality there. But what we do run into is an attempt by the government to regulate the gaming industry and a federal law that attempts to prohibit it.
Japan
To manage this, pachinko parlors compensate players for their winnings in the form of tokens, which are then exchanged for prizes at a front desk. These prizes usually take the form of a small piece of gold encased in plastic or something similar. The player then takes what they've won to a store next door - also owned by the person who runs the pachinko parlor - which will buy your prize back from you for cash.
Japan has no specific laws regulating or even defining Internet gambling. Consequently, there is no licensing process. However, it is widely accepted that placing bets online is a violation of the Japanese Criminal Code. Conversely, it is also widely accepted that there is little, if any, enforcement of this law when it comes to either accessing or playing with offshore operators.
Brazil
The country appears to be moving towards a future of well-defined, licensed and controlled Internet gambling, between the recently passed sports betting bill, which is currently being drafted by the Ministry of Finance, and the online gambling bill that has been the subject of debate in the Brazilian House of Representatives.
In the meantime, while still operating without clear rules or regulations around the use of offshore sites, residents of Brazil can access foreign domains to place their bets without fear of punishment. If anything, the market in the country will become stricter and more prohibitive when the framework of laws is created and put into effect.
Lots of Other Gray Areas
In fact, in most jurisdictions, individuals are connecting to and employing online service providers, even though they're working in direct contravention of fairly straightforward laws that prohibit the activity. And while there are laws regarding the owners of these domains, they are usually quite unenforceable in the places where the websites are actually hosted. And with mild civil consequences (if any) in the laws of the jurisdictions served, and no severe criminal consequences in the laws of the jurisdictions where the connected citizens live, both sides seem to have achieved complete freedom.
Then there are the areas - China, for example - where there are obvious and strong laws that directly prohibit citizens from using unlicensed websites. Despite this, foreign sites are pulling in huge amounts of money from inside China, where online gamblers are more than willing to use VPNs and risk being caught and fined in order to access foreign web-based gambling services and play the kind of online games they can't legally find in their own country.
For the Asian communist superpower, blocking foreign IP addresses and Internet censorship are not new practices. Rather, they are the common tools of common countries. For example, France, Switzerland, Austria, and many others use the same practice as China to block foreign IP addresses. These countries also have valid reasons for blocking foreign IP addresses - from trying to prevent unlicensed companies from providing services to maintaining a market monopoly. If you think I'm being too harsh, just remember that we're talking about blocking access to foreign IP addresses.
Skill-Based vs. Games of Chance
As you peruse our many "Country Gambling Laws" guides, you may notice that many places base their decisions about what is legal and what is not on one particular factor: the outcome of the activity. If the outcome is primarily determined by luck (or "chance"), it's considered "gambling," and that's usually illegal. If the player has some control over winning or losing, it's a legal "game of skill.
Depending on the country, the types of games that fall under these two categories will vary. In Brazil, poker is recognized as a game of skill, which exempts it from the country's existing gambling laws. Conversely, in Switzerland, the federal government classifies poker as a "game of chance," which subjects it to the same regulatory oversight as other casino games and bingo.
Often a small difference will decide which category a game belongs to. Take poker again; there are instances where only the stakes themselves determine the game type. If you subsidize your poker game by paying an entry fee, you're playing a game of skill. If you play with no entry fee and no prospect of a return other than your play, you're playing a game of chance.
In markets that are only partially open or even heavily restricted, this is almost always the metric used to draw the line between the illegal and the legal. Occasionally, decisions are made to make exceptions for certain games based on cultural or historical values, while banning everything else. But in regions that have expressed concerns about consumer protection and avoiding addiction, you will more often than not see a division between skill and chance/luck.
Regulatory Authorities Around the World
In this section, we would like to introduce you to some of the various regulatory authorities charged with licensing, monitoring and enforcing rules, regulations and disciplinary measures for the gaming industry in the many regions of the world. Some governments have assigned all of these responsibilities to a single agency, while others have established a complex or compartmentalized series of agencies and duties to perform and oversee the many functions necessary to keep the industry under control.
Federal Ministry of Finance The Austrian gambling sector consists of tightly regulated monopolies and oligopolies. The Austrian Gambling Act covers any activity that is considered a "game of chance" - which has meant a gradual downward spiral for many in the industry. This law places a large number of not-so-lucky activities under the jurisdiction of the Ministry of Finance. This entity is not only responsible for licensing, but also for maintaining monopolies, paying taxes, and more.
Provincial Governments - Austrian law also allows provincial governments to allow small saloons to have between ten and fifty slot machines. These games must follow certain regulations that specify how much can be wagered and what the winning amounts can be.
Caixa (Federal Savings Bank) - Brazil's gaming authority is the state-owned federal savings bank, Caixa. This entity runs the country's lotteries and issues the necessary permits for a shop to sell lottery tickets.
Ministry of Finance This government agency is currently in the process of creating a regulatory framework for sports betting in Brazil, following the recent legalization of sports betting in the country. It remains to be seen whether they will emerge as the licensing authority or whether another agency will be created for this purpose.
Kahnawake Gaming Commission - One of the largest commissions in Canada, they serve to regulate all gaming within the boundaries of their territory.
State Council - China's gaming authorities follow a hierarchy. The State Council delegates authority to the General Administration of Sport and the Ministry of Civil Affairs to oversee their respective sports and charity lotteries.
General Administration of Sport The China Sports Lottery Administration Center is granted the right to administer sports lottery licenses by the General Administration of Sport.
China Sports Lottery Administration Centre – China Sports Lottery Administration Centre permits shops and booths to administer the Sports Lottery.

The China Welfare Lottery Issuance Center is authorized by the Ministry of Civil Affairs to administer licenses for the Sports Lottery in China.
China Welfare Lottery Issuance Centre – China Welfare Lottery Issuance Centre permits shops and booths to administer the Welfare Lottery.
ARJEL The only authority authorized to issue licenses, enforce online gambling regulations and combat illegal gambling sites in France is ARJEL.
Arjel examines many legal, financial, and technical aspects, including not only the major agreements with the sports federations, but also the type of software these betting sites will use.
Supervisory authorities – See above.
Before a gaming operator can apply for a license, they must first obtain a Certificate of Personal Fitness, which is issued by the Ministry of Justice and Equality.
Revenue Commissioners – This agency is responsible for Ireland’s taxes. They also award permits for betting and remote betting.
Agenzia delle Dogane e dei Monopoli (ADM) - Italy's ADM is the single authority that regulates gambling, issues licenses, ensures compliance, collects revenues, and otherwise acts to keep gambling legal and above board. ADM has oversight of all forms of gaming. It also works to prevent such things as money laundering, addiction, and even what might be called excessive gambling.
Public Safety Commissions As pachinko machines are considered amusement or entertainment rather than gambling, they are licensed by provincial public safety commissions.
Ministry of Education, Culture, Sports, Science, and Technology – This entity oversees the Japan Sports Council, which operates toto.
Japan Racing Association (JRA) – The Japan Racing Association is responsible for operating horse races and their gambling.
Foundation of Japan Motorboat Racing Association – Operates motorboat racing and related gambling activities.
Ministry of Land, Infrastructure, Transport, and Tourism – This group supervises motorboat racing.
JKA Foundation – Operates motorcycle racing and related gambling activities.
This group oversees the gambling activities regulated by the Gambling Act. Its mission is to ensure that the country's gaming laws are followed and that all gaming is conducted fairly and honestly. Its main responsibilities include issuing licenses for gaming and for suppliers to the gaming industry, supervising and inspecting those who hold gaming licenses, and enforcing federal gaming laws.
Regional Authorities States or regional entities in Spain also have authority over their gaming laws and in some cases are responsible for their own licensing, oversight and enforcement.
Swiss Federal Gaming Board - The SFGB is a public body that acts as a watchdog, keeping an eye on the operations of what they call 'licensed jurisdictions'. It ensures that these jurisdictions comply with established laws and standards.
Swiss Lottery and Betting Board / Comlot – Comlot handles licensing and compliance requirements for Swiss lottery and betting activities.
State Gaming Commissions - The United States consists of 50 individual gaming jurisdictions. Regulators and licensing systems are the responsibility of each state. They have the authority to create both.
Frequently Asked Questions (FAQs)
Where is online gambling legal?
Online gambling is on the rise in most EU member states, as well as many smaller island jurisdictions in Asia and the Indian Ocean, and places like Switzerland. For a detailed overview of the online gambling laws of a particular country, check out my page on the gambling laws of various online jurisdictions.
How is gaming regulated around the globe?
In many parts of the world, Internet gambling is still in its infancy. In some places, Internet gambling is fully regulated and within the law; in other places, the rules against online operators are often so poorly written that they apply to the operators and not to the people who play. This creates a kind of legal limbo. In fact, most of the world doesn't even know that the Internet gambling industry exists.
However, these are only broad outlines. For the exact regulatory details of a particular location, you will need to consult that location's "Gambling Laws" guide.
Can I access gambling sites in countries without gambling regulations?
Offshore gambling sites are usually accessible in those markets where the law doesn't clearly state that online gambling or access to foreign operators is illegal.
