Polish Gambling Act: Something’s Brewing – Are We on the Brink of Transformation?

First Signal of Openness

On May 17, 2024, a meeting was held with representatives of the gambling industry and policymakers w as part of a meeting with the Employers of Poland (Pracodawcy RP), during which, for the first time in a long time, the topic of potential changes to existing gambling regulations was raised. The discussion signals a possible return to talks on updating the Gambling Act, which could have a significant impact on the future of the sector.

Although the details of the potential amendment have not yet been disclosed, the mere fact that the topic has been raised suggests a growing interest in aligning regulations with current market and technological realities. Industry representatives have expressed hope that the forthcoming changes will create a more transparent and a fairer playing field for legitimate operators, while increasing the effectiveness of the fight against the Grey market.

Breakthrough Talks at the Ministry of Finance

A meeting held on July 4, 2024, at the initiative of the Ministry of Finance, proved to be an even greater source of optimism. The event could confidently be described as a breakthrough — for the first time in years, officials engaged in open dialogue with the industry about the need to amend the Gambling Act, and some of the proposals were referred for further analysis.

I had the pleasure of attending the meeting as CEO of Gaming in Poland and personally presented our company’s position. During the discussions, we addressed a number of key issues: overly restrictive regulations for licensed operators, the need for a more balanced tax system (including a proposal to tax GGR), and the need to more effectively counter the Grey market.

Representatives of the administration emphasized that curbing the illegal market is in the state’s interest, as it supports the growth of the legal industry, increases budget revenues from the gambling tax, and improves the level of player protection. Participants of the meeting agreed on the scale of the problem: approximately 1.2 million Poles — nearly half of all active players — regularly used unlicensed platforms.

The meeting marked the beginning of a new chapter in cooperation between the gambling industry and regulator, carrying real potential for long-awaited, concrete reforms.

New Department for Gambling Regulation

On October 14, 2024, Minister od Finance Andrzej Domański issued an order establishing the organizational regulations of the Ministry of Finance. The document confirms the creation of the Department for Gambling Market Regulation and Gambling Tax — a new specialized unit within the structure of public administration, tasked with taking over comprehensive supervision of the gambling market. This is a long-awaited step toward the professionalization and formal organization of the sector — which the industry has been calling for years.

The Department is tasked not only with monitoring the legality of operators’ activities and supporting enforcement, but also with actively participating in lawmaking and legislative initiatives. Its role will also be to provide substantive support to the Ministry of Finance – enabling a real and constructive dialogue between the state and the market.

If the new institution receives adequate personnel and expertise support, it could become the missing link in a supervisory system that is currently often fragmented and ineffective. This step could significantly improve the quality of regulation and bring Poland closer to European standards in managing the gaming market.

Inter-Ministerial Team: New Weapon Against the Grey Market

On April 14, 2025, the Ministry of Finance held the inaugural meeting of the newly established Inter-Ministerial Team for Countering the Gray Zone.

The establishment of the Team is part of a broader plan to create a three-tier structure in public administration to comprehensively address the problem of the grey market. The structure is based on the interaction of three levels – from monitoring and analysis of the phenomenon, through the preparation of appropriate legislative and technological tools, to the practical implementation of solutions and enforcement.

The team’s task is not only to identify the mechanisms of the grey market, but also to develop a specific legislative and technological strategy. Planned activities included the implementation of digital tools for detecting illegal activity on the Internet, improving the exchange of information between institutions, and developing modern legal solutions for more effective enforcement of existing laws.

Gambling on the State’s Agenda

Gambling-related topics are increasingly appearing on the agenda of public debates and parliamentary sessions. Particularly notable is the fact that on March 17, 2025, the issue was taken up by TVP Info, a state-controlled public television channel. The program “Without a Retouch” (“Bez Retuszu”), hosted representatives of private sector, among others, Zdzisław Kostrubała – President of the “Play Legally” Association (“Graj Legalnie”), as well as politicians i.e. Michał Połuboczek – Confederation, Joanna Frydrych – Civic Coalition, Agnieszka Ścigaj – Law and Justice, and Sławomir Ćwik – Poland 2050 – Third Way.

The discussion covered issues such as the legalization of poker, restrictions on the state monopoly, and the replacement of the current inefficient tax model with a fairer GGR-based tax – already in use in many European countries.

The current gambling tax rate, which reaches up to 12%, is one of the highest in Europe and effectively discourages companies from operating legally. Transitioning to a GGR-based model could pave the way out of the grey market, increase budget revenues, and improve market transparency.

In ongoing discussions, the need for a shift in philosophy is becoming increasingly evident — from strict control to a more collaborative approach with legal operators. The newly established department overseeing the industry is expected to streamline procedures and more effectively combat illegal gambling, particularly online.

Parliamentary Group on Combating the Grey Market

A meeting of the Parliamentary Group for the Free Market, chaired by MP Przemysław Wipler, was held in the Sejm on March 27, 2025. The session is regarded as a key moment in the ongoing debate on the future of the gambling market in Poland. In the spotlight were the monopolistic position of Totalizator Sportowy, the legalization of poker, and efforts to combat the grey market. Attention was drawn to the unequal market conditions — legal operators, including the state-owned Totalizator Sportowy, are subject to numerous restrictions, particularly in the area of advertising, while illegal operators continue to operate with virtually no obstacles.

From the perspective of a participant and a speaker, I can confidently say that this was one of the most substantive and meaningful discussions on the shape of the gambling market we have had in recent years. Ultimately, rigid positions gave way to genuine dialogue that included representatives of the government.

Participants in the debate included, among others, Przemysław Wipler – Member of the Polish Parliament and Chairman of the Parliamentary Group for the Free Market; Beata Skuzińska – Director of the Department for Gambling Market Regulation and Gambling Tax at the Ministry of Finance and Paweł Bińkowski – Deputy Director of the same department.

There were also representatives of the Totalizator Sportowy with its CEO, Beata Stelmach, Mariusz Rzeczkowski – Director of the Innovation Strategy and International Cooperation Department, and Maciej Kasprzak – General Manager of the Online Gaming Division at Totalizator Sportowy.

Also participating online were, among others, Maciej Akimow – owner of iGamingPolska and IGamingExpress, and Adam Lamentowicz – President of the Polish Chamber of Commerce for the Entertainment and Bookmaking Industry.

This diverse group of experts, representatives of public administration, business, and independent analysts created a unique space for substantive discussion about the future of the gambling market in Poland. The meeting marked a step toward meaningful regulatory change, paving the way for more modern and flexible solutions in the Polish gambling market.

European Economic Congress

During the European Economic Congress on April 24, 2025, in Katowice, which brought together distinguished guests including Ireneusz Raś – Secretary of State at the Ministry of Sport and Tourism, Zdzisław Kostrubal – President of the “Play Legally” Association (“Graj Legalnie”), Mariusz Rzeczkowski – Director of the Innovation Strategy and International Cooperation Department; Olgierd Cieślik – former President of Totalizator Sportowy (2017–2024) and Wojciech Szpil – Chairman of the Board of the UN Global Compact Network Poland and former President of Totalizator Sportowy

The debate focused on the grey market in Poland’s online gambling sector. It is estimated that the annual turnover of illegal online gambling amounts to around 65 billion zlotys – nearly equaling that of the legal market. As much as 40% of the online casino segment remains beyond the reach of state regulation.

Participants in the debate discussed how to ensure effective protection of players while safeguarding the interests of the State Treasury. The need for market reform was emphasized in order to combat illegal gambling more effectively and increase revenues to the state budget.

This was one of the key events on the economic conference calendar, bringing together top-level decision-makers – including former prime ministers, business leaders, and industry experts – and providing an important platform for shaping regulatory and economic policy directions.

What Can Be Done Now ?

Although amending the provisions of the Gambling Act could pave the way for deeper reforms, it is already possible — within the existing legal framework — to take concrete and effective measures to improve the market.

First and foremost, it is worth considering the creation of a Gambling Guarantee Fund modeled after the Bank Guarantee Fund — an institution that could secure players’ funds in the event of the bankruptcy of legal operators.

The next step is to curb financial flows to illegal operators by more effectively monitoring transactions within payment systems and cooperating closely with the banking sector and fintech companies. These measures do not require legislative changes—only better enforcement of existing regulations.

Collaboration with Big Tech companies, such as Google and Meta, could enable automatic blocking of ads and profiles belonging to illegal gambling operators. The key here is to establish clear procedures for cooperation and efficient reporting of violations.

A further step involves enhancing the domain-blocking system, for example by enabling faster responses to new URLs or employing more advanced algorithms to detect attempts to bypass blockers.

Finally, player education—through information campaigns that highlight the risks of using illegal services and promote responsible gaming—can significantly reduce demand for the grey market without requiring legislative changes.

Conclusions: Change Is Possible

A market channelization rate of 59% in the online casino segment and 76% in sport betting, demonstrates the partial effectiveness of the current regulatory system. Totalizator Sportowy, as a state-owned monopoly, offers a robust online casino product and maintains a stable market position. However, more than 1.2 million players continue to use unlicensed operators that operate outside the consumer protection regime. Licensed operators face the burden of a 12% turnover tax and unequal competition from illegal gambling providers. This situation points to an urgent need to further optimize the regulatory model.

A series of industry and inter-ministerial meetings, the establishment of specialized supervisory institutions, intensified dialogue between public administration and representatives of legal operators, as well as increasingly bold political declarations, all indicate that change is no longer merely a demand from the community.

The establishment of the Department for Gambling Market Regulation and Gambling Tax at the Ministry of Finance and the Inter-Ministerial Team for Combating the Gray Zone are clear signs of the long-awaited professionalization of gambling market supervision. Meanwhile, meetings of parliamentary teams and debates, such as those held at the European Economic Congress, clearly demonstrate that gambling issues have finally secured a permanent place on the state agenda.

The growing openness of decision-makers to the industry’s arguments—including proposals to legalize poker, shift the taxation model to a fairer GGR system, and eliminate inequalities between legal operators and the Grey market—shows that the authorities are beginning to acknowledge the need for a partnership approach to the market. All of this is fostering an atmosphere in which the existing, ossified, and often repressive regulatory model has a chance to be replaced by a modern, transparent, and effective legal framework tailored to the digital age of the 21st century.

If the current pace of action is maintained and the declarations materialize into concrete bills, the coming years could permanently transform the gambling landscape in Poland.