United Arab Emirates – New Global Gambling Hub?

Gambling in the UAE

The United Arab Emirates is quickly emerging as one of the most closely watched jurisdictions in the global gaming industry. With the launch of the General Commercial Gaming Regulatory Authority (GCGRA) in 2023, the country has begun laying the legal and regulatory foundation for a national commercial gaming sector – one that spans land-based casinos, online gaming, sports wagering, and lotteries. Unlike other nations in the region, where gambling remains strictly prohibited, the UAE is developing a federal model that emphasizes integrity, responsible play, and international best practices.

Led by experienced figures from the U.S. gaming industry, including Jim Murren and Kevin Mullally, the GCGRA has already issued licenses, approved major developments like Wynn’s $3.9 billion resort, and introduced frameworks designed to protect players and ensure regulatory clarity. As infrastructure, legal oversight, and market demand align, the UAE could position itself not only as a regional exception, but as a new global hub for commercial gaming.

Regulatory Foundations and Federal Oversight

The General Commercial Gaming Regulatory Authority (GCGRA), established in September 2023, oversees all aspects of commercial gambling in the UAE. This includes casinos, sports betting, lotteries, and digital platforms.

Jim Murren, former Chairman and CEO of MGM Resorts International, chairs the authority. He also holds senior roles at the Ritz-Carlton Yacht Collection, Resorts World Las Vegas, Cirque du Soleil, Playstudios, and Acies Investments. His leadership supports the UAE’s aim to build a globally respected regulatory framework.

CEO Kevin P. Mullally brings over 40 years of experience. He served as General Counsel at Gaming Laboratories International and led the Missouri Gaming Commission, where he introduced the world’s first self-exclusion program in 1995. His background reinforces the GCGRA’s focus on transparency and social responsibility.

Vision, Mission, and Strategic Approach

The GCGRA aims to lead gaming regulation through innovation, safety, and responsible conduct. It promotes sustainable growth by applying world-class standards and responsive governance.

Its five core principles – Integrity, Trust, Collaboration, Innovation, and Excellence – guide all regulatory actions. These values shape its engagement with stakeholders, use of technology, and adoption of performance-focused protocols. The strategy relies on four pillars: global regulatory alignment, a strong focus on safety and responsibility, support for innovation, and contributions to national economic goals.

Regulated Gaming Activities

The GCGRA is responsible for regulating several distinct categories of commercial gaming:

• Lottery: A form of gaming that involves purchasing tickets or placing bets on numbers or symbols in the hope of matching them with those drawn randomly to win cash or prizes.
• Internet Gaming: Encompasses digital gaming platforms accessed via computers or mobile devices. Games include bingo, slots, roulette, blackjack, baccarat, craps, poker, eSports, fantasy sports, peer-to-peer games, and skill-based contests.
• Sports Wagering: Involves betting on the outcomes of sporting events or the performance of teams and athletes. Legal betting must be conducted through licensed sportsbooks.
• Land-Based Gaming Facilities: Physical establishments that offer various commercial gaming options such as slots, table games, and other casino-style entertainment.

Licensing Framework and Categories

The GCGRA can grant five categories of commercial gaming licenses to entities or individuals. In certain cases, licensees may be required to hold more than one license depending on their business operations or organizational role. The licensing system is designed to ensure thorough oversight across all levels of the gaming ecosystem.

These categories include both entity and individual licenses:

• Gaming Operators: Entities that operate internet gaming platforms, sports wagering services, land-based gaming facilities, or the national lottery and lottery retail outlets.

• Gaming-Related Vendors: Suppliers of gaming equipment or providers of services connected to the commercial gaming sector.

• Key Persons – Corporates: Corporate bodies that play a decision-making role within the structure of a license applicant or existing licensee. This includes controllers, affiliates, and management service providers.

• Key Persons – Individuals: Individuals with executive authority or responsibility within licensed organizations, such as directors, executive officers, or controlling persons.

• Gaming Employees: Individuals who are employed by, or otherwise connected with, licensed operators or applicants.

Current Licensees in the UAE

Only businesses and individuals holding a valid license from the GCGRA are authorized to operate in the UAE’s commercial gaming sector. This includes operators, employees, and third-party service providers.

• Lottery Licensee: The Game LLC – Operator of the UAE Lottery
• Land-Based Gaming Facilities Licensees: Island 3 AMI FZ-LLC (DBA: Wynn Al Marjan)
• Gaming-Related Vendor Licensees: The GCGRA has authorized several vendors to support the development of its commercial gaming ecosystem. As of 4th of June, these include Aristocrat Technologies Europe (Holdings) Ltd., Smartplay International Inc., PayBy Technology Projects LLC, Xpoint Technology FZ LLC, EQL Games Inc., Novomatic AG, IGT Global Services Limited, Scientific Games International Limited, Fennica Gaming and Random State AB. Each of these licensed companies provides essential products or services such as gaming software, payment solutions, draw equipment, and regulatory technology.

Nationwide Expansion Strategy

The GCGRA handles licensing, supervision, enforcement, and policy-making. By 2025, it issued six licenses, including those for The Game LLC and Wynn Resorts. Regulations address betting limits, harm prevention programs, AML controls, and local partnerships. Unlicensed gaming is illegal and punishable.

Initially, many expected gambling to remain confined to specific emirates. However, GCGRA’s national model allows licensing across all seven emirates. This unified approach replaces limited pilot programs.

Analysts forecast the UAE could earn $3 to $5 billion in annual gross gaming revenue. Resorts, online platforms, and sports betting are likely drivers of this growth.

The gaming sector aligns with tourism goals. The government wants 40 million hotel guests annually by 2031 and aims to raise tourism’s GDP share from $45 billion to $122 billion.

Resort casinos will attract tourists and economic activity, especially in Ras Al Khaimah. Related sectors – hospitality, real estate, entertainment, and finance – will also benefit.

First Casino License and Resort Development

In October 2024, Wynn Resorts received the first casino license. Its $3.9 billion development on Ras Al Khaimah’s Al Marjan Island is scheduled to open in early 2027 and will include a 224,000 sq. ft. casino, 1,500 hotel rooms, luxury retail, wellness spaces, and live entertainment. Annual revenue could reach $1.4 billion.

MGM Resorts is also exploring market entry, pursuing licensing in Abu Dhabi and developing luxury hospitality offerings in Dubai. Caesars Entertainment and other global operators are reportedly considering similar moves.

Lottery Expansion and Supplier Integration

The UAE’s first fully regulated national lottery is operated by The Game LLC, a subsidiary of Abu Dhabi-based Momentum, under license from the General Commercial Gaming Regulatory Authority (GCGRA). As the exclusive commercial lottery licensee, The Game LLC operates under the brand The UAE Lottery, which launched ticket sales on 27 November 2024, with its inaugural live jackpot draw scheduled for 14 December 2024.

The UAE Lottery is part of the GCGRA’s strategic initiative to formalize and expand the country’s commercial gaming sector. It represents a cornerstone of the UAE’s regulated gambling ecosystem, offering a landmark AED 100 million (approx. USD 27.2 million) jackpot prize, alongside scratch card offerings and secondary prizes ranging from AED 50,000 to AED 1 million.

As of 2025, only three operators are legally permitted to conduct lottery activities in the UAE:

• The Game LLC (The UAE Lottery)

• Big Ticket, operated at Abu Dhabi International Airport

• Dubai Duty Free

Responsible Gaming Framework

To address cultural sensitivities, the GCGRA has adopted a conservative, compliance-driven model that emphasizes player safety and social responsibility. Measures include:

• Advertising restrictions aimed at minors and vulnerable individuals
• Deposit and betting limits
• Cooling-off periods for at-risk players
• AI-driven behavior monitoring and biometric ID checks
• Mandatory contributions from operators to support gambling harm prevention

These initiatives are tailored to the UAE’s unique socio-religious landscape while drawing on best practices from mature markets like the UK and U.S.

Regulatory Responsibilities and Strategic Mandate

Established under the Federal Law by Decree Regarding Regulating Commercial Gaming, the GCGRA is tasked with setting strategies, executive regulations, and industry-wide policies. It defines operational standards to ensure fairness, integrity, and accountability across all gaming activities in the UAE.

Licensees are required to maintain high ethical and professional standards. They must comply with a wide array of technical and regulatory obligations, covering areas such as gaming operations, software and hardware integrity, and game design protocols.

The authority’s regulatory framework is built to be progressive, risk-aware, and innovation-oriented. Its central goal is to mitigate gaming-related harms while enabling the commercial gaming sector to make a meaningful economic contribution.

The GCGRA actively partners with international bodies. In May 2025, it signed an MoU with New Jersey’s Division of Gaming Enforcement to collaborate on policy and technology. Additional discussions with European regulators and certification labs are ongoing.

Operator education is a central goal. The authority provides clear guidance and open channels for communication to ensure that licensees understand the intent and execution of regulations.

Player protection tools such as self-exclusion, betting caps, and monitoring systems are required for all operators, reinforcing a safety-first framework.

Legal and Regulatory Foundations

Commercial gaming in the UAE is governed by multiple layers of federal legislation. Key legal instruments include:

• Federal Decree-Law No. (20) of 2018: Anti-Money Laundering and Combating the Financing of Terrorism and Illegal Organizations.

• Cabinet Decision No. (10) of 2019: Executive Regulations for implementing AML law.

• Cabinet Resolution No. (24) of 2022: Updates to prior AML executive provisions.

• Federal Decree-Law No. (26) of 2021: Amendments strengthening AML measures.

• Cabinet Decision No. (74) of 2020: Regulations on terrorism lists and compliance with UN Security Council resolutions.

• Federal Decree Law No. (7) of 2014: Combatting terrorism offences.

These legal frameworks reinforce the UAE’s position on financial crime prevention and ensure the GCGRA’s operations remain aligned with both national priorities and international obligations.

Competetive Landscape and Regulatory Risks

The GCGRA is pursuing a gradual, region-specific rollout to balance economic potential with social acceptance. Yet, challenges remain:

• Cultural sensitivities in a historically conservative society
• Potential variation in enforcement across emirates
• Public skepticism, requiring education and outreach

In most of the Arabian Peninsula, gambling remains strictly prohibited under Islamic law. Countries like Saudi Arabia, Qatar, Oman, and Kuwait maintain outright bans with severe penalties. Even during events like the 2022 FIFA World Cup, Qatar upheld its anti-gambling stance. Other Islamic-majority countries, such as Iran and Pakistan, continue to enforce broad bans, while some, like Malaysia and Turkey, allow limited forms of state-run gambling under specific conditions.

The UAE stands out for pursuing a controlled commercial gaming model. The establishment of the GCGRA and licensing of major operators like Wynn Resorts mark a shift from regional norms.

Global Gaming Hub

With the establishment of the General Commercial Gaming Regulatory Authority, the UAE has signaled more than just a regulatory shift – it has laid the groundwork for becoming a major global player in the commercial gaming industry.

By combining world-class leadership with a modern licensing system, a robust legal foundation, and a firm commitment to responsible gaming, the country is positioning itself as a credible and competitive alternative to established markets like Macau, Singapore, and Las Vegas. The integration of the UAE’s gaming strategy into broader national objectives – including tourism, hospitality, and economic diversification — only strengthens this trajectory.

Early milestones, such as the licensing of Wynn Resorts and the launch of The UAE Lottery, suggest that the country is moving swiftly from policy to execution. The scale of investment, the emphasis on regulatory excellence, and partnerships with global authorities highlight the UAE’s ambition not just to host gaming, but to lead in how it’s governed.

Moreover, the UAE’s large expatriate population – which makes up nearly 90% of the country – means that regulatory frameworks can be tailored to meet the entertainment expectations of a globally diverse demographic, while maintaining respect for local values. This dual approach allows the UAE to develop a controlled, commercially viable gaming sector without undermining its cultural identity.

Of course, challenges remain. Cultural considerations, regional skepticism, and the need for continued public education will shape how quickly and widely gaming is adopted. But if current trends continue, the UAE could redefine what modern, socially responsible gaming looks like – not just in the Middle East, but on a global scale.