What Changed in Gambling Regulation Globally in the First Months of 2025?

Changes to gambling regulations in 2025

Although the year has only just begun, there is no shortage of signs that the gambling landscape is changing rapidly. Several countries have already moved from announcements to the implementation of hard reforms – with high capital thresholds, elaborate supervisory systems, new regulators and stricter requirements for operators.

As in previous years, the main motivation for governments is the desire to tax the grey market, which is still prevalent in many countries, especially in the online sector. However, this time the changes go further, with many countries investing in regulatory infrastructure, digital player identification and close market monitoring. Below is an overview of the most important reforms.

Uzbekistan: High entry thresholds and centralized monitoring

As of January 1, 2025, Uzbekistan has introduced a sweeping regulatory framework for gambling, requiring all operators—online casinos, sportsbooks, and lottery providers—to obtain licenses from the National Agency for Prospective Projects (NAPP). The new structure imposes some of the region’s highest financial thresholds.

Online operators must hold a minimum of $4.4 million in authorized capital and maintain a $2.2 million reserve fund. For lottery operators, the respective figures are $1.6 million and $1.2 million. These levels of capital commitment effectively narrow the market to large-scale domestic or well-capitalized international players.

Compliance obligations are equally robust. All gambling must take place via licensed digital platforms using photo-based ID verification, cross-referenced against national databases. Electronic-only transactions are mandatory, ensuring traceability and auditability.

Prize payout ratios are regulated: at least 50% of revenue must be returned to players in traditional lotteries, and 75% in electronic ones. Additionally, a Unified State Register of Bets and Players will oversee player behavior, enforce limits, and implement self-exclusion policies. Individuals with court-imposed bans or diagnosed gambling disorders will be excluded automatically.

New eligibility rules prohibit anyone with a criminal record or financial misconduct history from managing gambling companies. Enforcement will be led by NAPP in coordination with the Central Bank, Tax Committee, and Ministry of Internal Affairs.

Thailand: Legalization of online gambling on the horizon

Thailand is laying the political and regulatory groundwork for legalizing online gambling —a significant shift in a country where gambling has historically been banned under the 1935 Gambling Act. The proposal remains in its infancy, but top-level government attention and public debate mark a turning point in national policy. The push to legalize online gambling comes with the government also preparing to legalize land-based casinos.

Deputy Prime Minister and Minister of Digital Economy and Society, Prasert Jantararuangtong, confirmed that formal talks between ministries are now underway. These discussions aim to align legislation across departments and lay the foundation for a future law that could regulate online betting platforms, casinos, and digital lotteries.

At the heart of this momentum is growing concern over Thailand’s shadow gambling market. Unregulated online betting is flourishing, often tied to financial fraud, criminal networks, and youth access. Officials increasingly view legalization—not prohibition—as the path toward control, taxation, and harm reduction.

Former Prime Minister Thaksin Shinawatra has added weight to the proposal. His public advocacy for regulation—combined with the political influence of his daughter, current Prime Minister Paetongtarn Shinawatra—has helped keep the issue in the spotlight. However, no concrete legislation has been drafted, and no timeline has been confirmed for a public consultation or parliamentary vote.

Thailand’s next steps will be closely watched, especially in Southeast Asia, where legal online gambling remains rare.

Paraguay: End of monopoly and breakthrough in licensing policy

Paraguay has ended its longstanding gambling licensing monopoly, opening its market to competition in key verticals including sports betting and lotteries. The change came with the passage of Laws 7438 and 7483.

Until now, only one operator could receive a license per game type. That restriction is gone. Going forward, up to three operators may compete in each vertical, a move intended to diversify offerings, lower consumer risk, and stimulate private investment.

“One of the most notable aspects is the elimination of the monopoly on licensing for games like lotteries and sports betting. Now, up to three operators can participate per game category. This change aims to foster fairer and more diverse competition in the gambling market,” said Óscar Orué, Director of the DNIT.

The overhaul also realigns regulatory authority. Paraguay’s gambling regulator, CONAJZAR, will now report directly to the country’s tax agency—the Dirección Nacional de Ingresos Tributarios (DNIT).

One immediate benefit: enforcement powers are stronger. The DNIT can now block illegal online platforms and confiscate unlicensed equipment. It also has jurisdiction to pursue criminal charges—violators may face up to five years in prison.

The fiscal goals are equally ambitious. Officials project more than $63 million in gambling tax revenue in 2025, more than double the previous year. These funds are earmarked for public goods: healthcare, education, and social programs.

Paraguay is now positioning itself as a more transparent, competitive and enforceable market. Time will tell whether local and international operators will take advantage of this opportunity.

Brazil: Certification push for B2B suppliers and enforcement drive

As of January 1, 2025, Brazil has officially launched a regulated gambling market, introducing a formal licensing system that includes online betting. The sector now operates under the authority of the Secretariat of Prizes and Bets (SPA), marking a major shift in the country’s gaming framework. Projections suggest the market could generate up to €6.54 billion in revenue this year.

Following the rollout of operator licensing, regulatory focus in Brazil is now turning to the B2B segment—particularly suppliers of platforms, systems, and gaming technology. According to SPA head Regis Dudena, a dedicated certification system for providers is currently in development.

Speaking at ICE Barcelona, Dudena acknowledged that gaps in regulation became apparent after incidents involving uncertified live casino equipment. These issues exposed the lack of technical standards for imported machines—something Brazil’s current framework failed to anticipate.

The government has not confirmed whether suppliers will be subject to a full licensing regime or a lighter certification scheme. But the regulatory direction is clear: suppliers will no longer operate in a legal vacuum.

Meanwhile, enforcement actions against illegal operators are intensifying. Over 9,000 unlicensed gambling domains have been taken down. SPA has also partnered with Google, Meta, and TikTok to streamline the removal of unlicensed gambling ads and suspend associated accounts.

Behind the scenes, financial controls are tightening. Payment providers are being monitored more closely, and new procedures are being developed to block funds flowing to unauthorized operators. Brazil is also working on a national self-exclusion system—a first for the country.

A comprehensive government report is currently being drafted to map both the licensed and grey-market segments. With proper enforcement and supplier oversight in development, Brazil’s regulatory puzzle is beginning to take shape.

Curacao: LOK licensing regime modernizes regulatory structure

Once known as a haven for light-touch gambling licenses, Curaçao is now undergoing a serious regulatory transformation. The Landsverordening op de Kansspelen (LOK), Curaçao’s new licensing law, replaces the NOOGH regime and introduces a comprehensive framework intended to align the island’s iGaming sector with international standards.

The shift is already underway. As of December 2024, all NOOGH licensees were automatically issued provisional LOK licenses, valid for six months. These may be extended for another six months, provided operators demonstrate compliance via the new Curaçao Gaming Authority (CGA) portal.

The new fee structure is transparent but more costly. A B2C license carries an annual fee of €24,490, plus €22,960 in supervisory costs. Additional charges apply for registered domains and beneficial owners. B2B suppliers are also subject to supervisory fees.

Beyond the financial side, compliance is where the transformation is most visible. All licensees must now:

• Appoint a Compliance Officer

• Meet KYC and AML obligations

• Implement cybersecurity protocols

• Follow responsible gambling policies (currently under consultation)

• Resolve disputes via approved procedures

CGA has approved a list of service providers responsible for critical infrastructure—ensuring that hosting, reporting, and player data management happen under tighter scrutiny.

Curaçao is signaling that it wants to be seen not as a shortcut, but as a serious jurisdiction with clear rules and credible enforcement.

New Zealand: Up to 15 licences for online casinos in 2026

New Zealand is preparing to enter the online gambling market. Internal Affairs Minister Brooke Van Velden announced that up to 15 operator licenses will be issued by 2026, marking the first time the country will permit regulated online casino play.

The legislative framework is expected by April 2025, with auctions for licenses scheduled for February 2026. Operators will be selected based on compliance capabilities, responsible gambling commitments, and technical standards. Only 15 licenses will be issued initially, in line with expert recommendations to ensure manageable oversight in the early stages.

The rationale behind the change is straightforward. Most New Zealanders who gamble online currently do so via offshore platforms, which offer little in the way of player protections or domestic economic benefit. The government sees regulation as a way to bring this activity under national control—ensuring safer conditions and capturing lost revenue.

Operators will face stringent advertising limits, especially regarding content that targets minors or promotes gambling as a lifestyle. Penalties for non-compliance could reach NZ$5 million, and repeat violations may result in license termination.

Van Velden emphasized that the reform is not a bid to increase gambling activity, but rather to ensure safer access for those already participating.

“My goal is not to increase the amount of gambling that is happening online, but to enable New Zealanders who wish to play casino games online to do so more safely than they can do today,” she said.

By creating a tightly controlled market with high regulatory standards, New Zealand hopes to shift the status quo away from offshore platforms and toward domestically licensed.

Armenia: Progressive tax hike and new oversight bodies

Armenia’s parliament has approved sweeping changes to its online gambling legislation, focusing on two core objectives: significantly boosting state revenue and curbing problem gambling. The reform introduces a phased increase in licensing costs for both online casinos and sports betting operators, paired with structural reforms to regulatory oversight.

Effective April 1, 2025, licensing duties will double. For online casinos, annual fees will rise from AMD 350 million (approximately $890,000) in 2025 to AMD 1.4 billion ($3.5 million) by 2028. Sports betting licenses will see a similar fourfold increase—from AMD 100 million ($253,000) to AMD 500 million ($1.27 million) over the same period.

In addition to flat fees, the legislation introduces volume-based surcharges. If an online casino surpasses AMD 100 billion in annual turnover (around $253 million), additional payments will be triggered. For betting operators, the threshold is AMD 50 billion

The reform also lays the groundwork for two new supervisory bodies: the Gaming Sector Monitor and the Gaming Operator Institute. These institutions will be responsible for licensing, compliance enforcement, and market analysis once operational.

Originally, lawmakers proposed a 10% turnover tax, but this was withdrawn following pressure from industry groups and concerns about capital flight to offshore jurisdictions.

Government estimates suggest the new framework could increase GDP by up to 15% and raise gambling tax revenues by more than 7%. Additional proposals—such as restricting access for public officials and at-risk individuals—are still under consideration.

Austria: Monopoly retained, reform underway

Austria will maintain its single-operator model for online casinos through 2027. Win2Day, operated by Austrian Lotteries, will continue to hold the sole license. However, structural changes are coming, starting with the creation of an independent gambling authority to replace the Ministry of Finance as the industry’s regulator.

This move addresses long-standing concerns over conflicts of interest—given the Ministry also owns a 33.3% stake in Casinos Austria. Although no formal timeline has been set, experts warn that delays could result in legal disputes as the 2027 relicensing process approaches.

The coalition government also plans to raise the betting tax from 2% to 5% and harmonize fragmented state-level sports betting regulations. Introducing national standards would require state cooperation, making implementation politically complex.

Lawmakers are also considering bringing loot boxes under gambling law, which would impose licensing, AML, and youth protection requirements on video game publishers. These changes reflect a broader push to align with evolving EU digital regulation.

Croatia: Broad reforms to gambling law by 2026

Croatia’s upcoming reforms represent one of the most comprehensive overhauls in Europe. Set to take effect in early 2026, the new framework introduces a national player ID system, mandatory self-exclusion, progressive taxation, and tighter advertising and zoning rules.

All gambling—land-based and online—will require identity verification via a central database. A self-exclusion register must be operational within 190 days of the law’s enforcement, allowing users to block access to all licensed operators.

Advertising will face major constraints: gambling ads are banned from 6:00 a.m. to 11:00 p.m. across all major media channels. Endorsements from celebrities and marketing aimed at minors are also prohibited.

New location restrictions will force many operators to relocate. Venues must be at least 500 meters from schools and places of worship, and no two outlets may operate within 200 meters of each other. Self-service betting terminals in public venues like cafés will be banned outright.

The tax model will shift from flat to progressive rates on winnings (10%–30%), and licensing fees will increase substantially:

• Land-based casinos: €600,000 (up from €400,000)

• Online casinos: €398,168 (up from €265,445)

• Betting shops: €200,000 (up from €132,722)

A dedicated gambling authority will oversee compliance. The government expects the reform to generate €50–70 million annually and reduce the number of active gambling venues by 15%.

What these early moves tell us?

The first quarter of 2025 shows a clear shift toward stronger state control over gambling markets. Regulators are tightening entry conditions, expanding oversight tools, and in some cases redefining the structure of entire sectors. Several jurisdictions are moving beyond incremental adjustments in favor of systemic reform—whether through new licensing regimes, institutional realignments, or targeted enforcement strategies.