Updated Casino Regulations in the United Kingdom
Anecdotal evidence shows that only three of the 2005 Act casinos offer betting, representing about 0.2% of the total GGY for each of those casino premises. As outlined in the table below, we propose that casinos with a gambling area of 280sqm or less are allowed 16 machines, increasing by two machines for every additional 20sqm of gambling space, up to 40 machines. We propose that the number of machines is limited, based not on gamstop on the overall gambling area of the casino.
Anecdotal evidence suggests that for some individuals the option of attending physical bingo premises delivers substantial social benefits which would be lost if the sector is not supported. We will use the responses to this consultation as well as wider engagement with the sector to gather data to estimate the likely change in machine configuration in bingo and arcade venues. Another key benefit is the increased GGY from Category B machines in bingo and arcade venues. The proposed measure will allow venues to remove unused Category C and D machines and save on the costs of maintaining and powering them.
Free-to-play casino games with prizes are regulated by the Gambling Commission (licence required). The Gambling Commission has a range of powers, including the ability under the Gambling Act 2005 to investigate and bring prosecutions against those that provide unlicensed gambling facilities to consumers in Britain. The legal approach is to completely criminalise gambling but then to make exceptions for persons who comply with the licensing regime, pay the applicable tax, observe the applicable regulation and so on.
The government has already indicated that it intends to examine radical new ways to mainstream and improve ADR across the economy for all types of disputes including consumer disputes, so it is no longer viewed as an ‘alternative’ to court but operates as an integrated part of the justice system. Most submissions called for a gambling ombudsman, though there were significant differences in proposals for how best to design a new system, its remit, powers and the specific details around the desired outcomes of the new arrangements. There may also be particular difficulties if the complainant is vulnerable due to gambling disorder or some other factor. This can be costly, time consuming and potentially inequitable given the resource disparities between the typical complainant and the gambling operator.
Annex A: Impact of proposals
Betting is permitted in 2005 Act casinos, which represent seven of the 122 casino premises open across Britain’s casino estate. As the Gambling Commission’s advice underlines, as a minimum, operators must be able to implement age verification and customer interaction, and maintain self-exclusion effectively regardless of the number of machines they are permitted to offer. This data was collected by the Gambling Commission from over 80% of the land-based casino sector. Notably, these rates are below the at-risk and problem gambling rates for casino table games (31.5% and 6.4% respectively). • Each separate area comprising the non-gambling area, other than the lobby areas and toilet facilities, must contain recreational facilities that are available for use by customers on the premises.
Similar provisions of the Act relate to gaming and gaming machines in licensed premises in Scotland, but these apply to premises which have a premises licence granted under the Licensing (Scotland) Act 2005. 1968 Act casinos are limited to 20 gaming machines only, regardless of size, unless they restrict themselves to lower stakes machines only. The land-based sector includes casinos, licensed betting offices, licensed bingo premises, family entertainment centres, adult gaming centres, and on-course betting at racecourses.
The register also shows enforcement history and which domains a licence covers. Licensed sites must display their licence details. Check the operator name or licence number from the site footer against the UKGC public register.
Where a casino has two premises licences, an operator is able to site 40 gaming machines in the same building; and where an operator has three licences, 60 gaming machines. In order to be entitled to an allowance of 80 gaming machines, 1968 Act casinos will need to comply with the same minimum requirements as a Small 2005 Act casino on gambling, table gaming and non-gambling area. The UK Gambling Commission (UKGC) oversees all gambling activities under the Gambling Act 2005, from land-based casinos and betting shops to lotteries and online gaming. To protect players, we only to list UK online casinos that are licensed and good standing with the UK gambling commission.
“stake” means to pay or risk an amount in connection with an online slots game. (3) Where this condition is attached to a remote casino operating licence which was issued before this regulation comes into force, the condition has effect from the date on which this regulation comes into force. As the response and the SI set out, the stake limits are for online slots only and do not apply to other casino games, such as roulette or blackjack. The SI has the effect of adding a new condition to all remote casino operating licences. We are responsible for issuing personal gambling licences for individuals and gambling operating licences for businesses operating in Great Britain.
Replacing industry ownership, the Department for Culture, Media and Sport and the Department of Health and Social Care will work together with the Gambling Commission, drawing on public health and social marketing expertise, to establish the most effective messaging and how it should be used. The Online Advertising Programme will explore further mechanisms to reduce harm from advertising across all sectors. Certain types of competitions and prize draws which offer significant prizes such as a luxury home or car now operate online in ways which could not have been foreseen in 2005.
This was higher than the Health Survey for England (HSE) 2018 estimate but could be due to a number of factors, including the pilot having somewhat higher rates of past year gamblers than the HSE. This new way of collecting data was successful in attracting participants and generated a good response rate across the whole of Great Britain. In June 2020, following a consultation, the Commission started piloting a new set of survey questions designed to better understand the incidence, nature and severity of harm experienced by gamblers and non-gamblers. Collecting and disseminating information relating to the extent and impact of gambling in Britain forms an important basis for this advice. Under section 26 of the Gambling Act 2005, the Commission is responsible for advising the Secretary of State on the manner in which gambling is carried on as well as the incidence, effects and regulation of gambling in Great Britain. The work it is doing to improve collection of participation statistics and its future work to make more data available to researchers will also be important contributions and are outlined further below.
However, gambling disorder and gambling-related harms are usually attributable to complex interactions between multiple factors. It is important to note that the approach used for gambling will inevitably differ to the approach used for alcohol, not least because of the difference between the licensing objectives for alcohol and for gambling. The findings of a CIA would not remove a licensing authority’s discretion to grant applications for new licences or applications to vary existing licences, where the authority considers this to be appropriate in the light of the individual circumstances of the case. Licensing authorities also have the power to attach licence conditions and remove premises licences if required.
The tables below outline current and proposed space requirements for 2005 Act casinos, and 1968 Act casinos which seek to increase their gaming machine entitlement above 20 (including at least one Category B machine). As gaming machine allowances and machine to table ratios for 1968 Act casinos and Small 2005 Act casinos converge, more consistent size requirements should apply across the two types of licence to ensure a degree of fairness and consistency. It was also noted from the call for evidence that where other jurisdictions apply a machine to table ratio, all currently permit a greater proportion of gaming machines in comparison to Great Britain. 1968 Act casinos that are smaller than the configurations of a 2005 Act Small casino but have a gambling area equal to or greater than 280sqm will be able to increase their gaming machine allocations on a pro rata basis commensurate with gambling area. 1968 Act casinos that have a gambling area of at least 500sqm will be eligible for the same number of machines as permitted in a Small 2005 Act casino.
This suggests that, had the operator assessed the customer’s financial circumstances earlier and more effectively, they could have acted to reduce the extent of financial harm suffered. In a similar compliance case study identified by the Commission, a customer lost approximately £33,000 in three months without the operator carrying out any financial risk assessment. As such, the rate and level of spending would have been unaffordable for the vast majority of UK households, and likely to indicate harm. In a case which recently led to compliance activity by the Gambling Commission, a customer lost £36,000 in four days without appropriate financial risk assessment being carried out.
The Gaming Act of 1968
For this reason, submissions from members of the public which came via 38 Degrees accounted for 94% of all submissions of the Act Review call for evidence by volume. However, where the evidence is pertinent to policy development, suitably anonymised excerpts have been included throughout the white paper. We do not intend to publish in full all of the submissions to the call for evidence as a number of respondents provided information on a confidential basis. Finally, treatment providers, most notably NHS clinicians and third sector gambling treatment specialists, provided 8 submissions. 18 sports and racing bodies provided targeted submissions on aspects of the call for evidence which overlapped with their sport, mainly on advertising and sponsorship. The All Party Betting and Gaming Group did not make a collective submission, but individual members provided evidence independently.
Please share any evidence or information that is relevant to the proposed amendment to the definition of gaming tables since the government stated its intention to make this change in 2018. Only tables for multi-player live gaming, operated by a casino dealer, will qualify for the purposes of this ratio. We do not intend on making any changes to when a gaming table will be treated as being ‘used’ for the purposes of the machine to table ratio as set out in the current Regulations.
Once published, CIAs place some of the ongoing analytical burden on the applicant, as the operator has the option to demonstrate that its proposals will not increase harm in a particular area. We accept there is merit in bringing the regime for gambling in line with alcohol and will legislate to introduce CIAs when Parliamentary time allows. We also recognise that licensing authorities, as well as the LGA and the Gambling Commission, have requested that CIAs are introduced.
Alcohol licensed premises are automatically entitled to 2 gaming machines of Category C or D, and while Category D machines are not prohibited for under 18s, there is an age limit of 18 years for all Category C machines. This requirement covers all casinos (regardless of fee category), as well as betting premises, AGCs, FECs and bingo premises that are fee Category C or higher. On the balance of the evidence, we do however believe a more precautionary approach is justified for slot style games which mirror the mechanics of adult-only gaming machines, particularly those which pay out cash. All forms of Category D gaming machines can currently be played at any age unless the premises in which they are located are age-restricted. However, one local council reported poor test purchasing pass rates for gaming machines sited in alcohol licensed premises, while advice from the Gambling Commission pointed to poor test purchasing results from both alcohol licensed premises and on course bookmakers prior to 2020.
In February 2021, the Gambling Commission announced revised standards for online slot games to make them safer by design. In addition, the regulator also sets the Remote Technical Standards which outline the security and technical standards for remote gambling operations. While operators’ approaches to achieving this vary, the strengthened Gambling Commission rules which came into force in September 2022 and February 2023 clarify operator responsibilities around customer interaction and mandate consistency across the sector. Where needed, the actions taken must include encouraging or requiring a player to set limits, actively signposting to support services, suspending marketing in cases where there are strong indicators of harm, and unilaterally suspending or closing accounts. Services such as Gamban and BetBlocker also allow consumers to block access to gambling apps and websites on internet devices.
- As outlined, the Gambling Commission has expressed concern regarding the adherence of operators to ‘available for use’ guidance.
- This means that any breach of licence conditions by a third party contracted to promote an operator’s business will be treated as a breach by the operator.
- However, we also received evidence form a small number of additional respondents.
The Betting and Gaming Council (BGC) have provided detailed information on each casino, including floor space and the number of existing machines. Should access to a greater number of gaming machines require compliance with each of the three size requirements outlined above? Do you agree with the proposed (i) minimum gambling area; (ii) table gaming area; and (iii) non-gambling area requirements for 1968 Act casinos under the new regime? Only areas that comprise 12.5% of the minimum table gaming area can be taken into account when determining the total table gaming area for 1968 Act casinos that access the new machine entitlements. Under the sliding scale proposal (Fig 3), this casino would only be entitled to 70 machines due to the size of its non-gambling area in this instance. While the gambling and table gaming area requirements would be enough for an entitlement of 80 machines, its non-gambling area is too small to qualify for this entitlement.
In general, it is illegal for the holder of a licence to sell alcohol to facilitate betting on the premises. The total online gambling population in the UK is estimated at 2.1 million customers. Instead it supported plans for 16 smaller casinos, including ones in Solihull and Wolverhampton. Casinos had a similar history, with requirement for licensing from the Gaming Board of Great Britain and for casinos to be members only clubs.
Smaller GGY impacts on land-based gambling
The government commissioned an independent review into the regulation of BetIndex Ltd (the operator of Football Index). The product evolved to let customers buy and sell bets, with price fluctuation largely driven by consumer demand. However, it can mean that a former licensee is able to avoid a fine as a result of its failings during the period that it held a licence. The Commission has also advised that some of its powers concerning investigations could be enhanced to better protect consumers and hold operators to account.
At the same time, it is also important that the ways licensing authorities approach local considerations across the country are consistent and follow the same framework principles. Although there is a workaround available to licensing authorities, and the Gambling Commission has published an advice note setting this out, the Commission also recommends that the legislation is amended to provide further clarity. The Gambling Commission also recommended that some clarifications and technical amendments are made to the Gambling Act 2005 to confirm that certain powers apply to licensing authorities and/or licensing officers in Scotland as they do in England and Wales.
The Commission also highlighted that in spite of the increases since 2017, it has continued to find operators breaching their licence conditions, particularly the social responsibility codes. Since April 2016, the Commission has also revoked 14 operator licences and 66 personal licences, often due to operators failing to adhere to social responsibility and anti-money laundering rules. The Commission’s approach to enforcement changed significantly in 2017 when it unveiled a new strategy to tackle operators which breach their licence conditions and relevant codes of practice. Our call for evidence posed a series of questions relating to the Gambling Commission’s powers and resources and received responses from industry, campaign groups and members of the public. The Commission has taken action following the independent review of Football Index to implement those recommendations, including enhancing its licensing approach to novel products and agreeing a memorandum of understanding with the Financial Conduct Authority.
Bacta estimates that the removal of each Category C and D machine could save on average up to £21 per week, or £1,092 per annum, depending on trading hours. Industry responses argue that the current 80/20 ratio creates a disincentive to modernise older analogue Category C cabinets as they lack customer demand, yet operators are required to maintain them to meet the ratio. We have received estimates from the bingo club sector which show that the average weekly GGY produced per tablet machine is c.£3.80. In the bingo sector, for the equivalent machine we received estimated weekly GGY per machine to be c.£500. We did not receive GGY estimates for the arcade sector, however, industry responses indicated that they anticipated greater GGY returns under Option 3 than under Option 1.
The UK casino regulations represent the most significant overhaul of British gambling law in over two decades. Membership of GAMSTOP is mandatory for all licensed online operators. Operators pay gambling duties instead, including the 40% Remote Gaming Duty introduced in April 2026. Every casino in our UK casino rankings is licence-checked as part of our review process, so the list is a safe starting point.
Additionally, an objective of this measure is to reduce average session duration, which is linked to gambling harm. On the other hand, in 62% of all sessions from April to September 2019, the player either won money on the machines or lost an amount up to £20. However, these rates are lower than the majority of other gambling products, although remain above the at-risk and problem gambling rates for ‘any gambling activity’. Please explain your answer, including an alternative solution for how to calculate non-gambling areas where applicable. • Any non-gambling area may consist of one or more areas within the premisesDo you agree that this should remain the same under the new regime? It is for the Scottish Ministers to consider whether they want to amend the Mandatory and Default Conditions that apply to casinos located in Scotland.
