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Is Gambling Legal in Croatia?

Regulated
Gambling is fully regulated under the Games of Chance Act, with recent reforms introducing stricter controls, player protection measures, and enhanced oversight.
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    Key Information Highlights Legislation Timeline Requirements Sources

    Key Information

    Last Update 2025
    Regulatory Authority Ministry of Finance, Department for Games of Chance
    License Cost Varies

    Regulation by Activity Type

    Casinos Regulated
    Online Casinos Regulated
    Betting Regulated
    Online Betting Regulated
    Lotteries Regulated
    Poker Regulated

    Highlights

    • Gambling in Croatia is primarily regulated by the Games of Chance Act, enforced by the Ministry of Finance.
    • A major legislative overhaul is underway, with stricter rules and protections to be fully enforced by early 2026.
    • All gambling operators must obtain a license from the Ministry of Finance, with specific rules for each game type.
    • A centralized player identification system and a national self-exclusion register will become mandatory by 2026.
    • Advertising is heavily restricted, with bans on ads between 6am and 11pm and prohibitions on celebrity endorsements.
    • Recent reforms increase taxes on gambling winnings and operator fees, aiming to address problem gambling and black market activity.
    • Location restrictions for betting shops may force up to 60% of venues to relocate or close once current rights expire in 2025.
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      Legislation

      Primary Legislation

      The core legal framework governing gambling in Croatia is established by the Games of Chance Act. This comprehensive law regulates all forms of games of chance, including their categorization, operational standards, and the licensing regime for operators. The Act also grants the Ministry of Finance broad supervisory powers over the organization and operation of gambling activities. In addition to the Games of Chance Act, several other legislative acts apply to the gambling sector:
      • Games of Chance Act – The principal law defining categories of gambling, regulatory requirements, and the supervisory structure for all games of chance.
      • Act on the Prevention of Money Laundering and Terrorist Financing – Applies to gambling operators, imposing obligations related to anti-money laundering (AML) and counter-terrorism financing measures.
      • General Tax Act – Sets out the general principles of taxation that are also applicable to the gambling sector.
      • Corporate Income Tax Act – Governs the taxation of corporate entities, including gambling operators.
      • Additional ordinances and rulebooks issued by the Ministry of Finance detail technical and operational standards for different categories of gambling games.

      Regulatory Authority

      The principal regulatory oversight for gambling in Croatia is exercised by the Ministry of Finance, specifically through its Department for Games of Chance. This authority is responsible for the implementation and enforcement of gambling legislation, as well as the issuance of secondary regulations and operational guidelines.
      • Supervises and enforces compliance with gambling laws and regulations.
      • Issues ordinances and rulebooks detailing technical and operational standards.
      • Oversees the licensing and monitoring of gambling operators (without detailing procedures or requirements).
      • Coordinates with other government agencies on matters such as anti-money laundering and public health protections related to gambling.

      License Types

      Types of Gambling Licenses in Croatia

      • Casino License: Required for operating land-based casinos. Each license is location-specific and subject to a maximum number set by the government.
      • Betting License: Covers fixed-odds betting, totalizator betting, and sports betting, both retail and online.
      • Slot Machine Club License: Needed for operating slot machine clubs outside of casinos.
      • Online Gambling License: Covers online casino games, betting, and other games of chance. Only companies registered in Croatia can apply.
      • Lottery License: The national lottery operator holds an exclusive license for lottery games and certain instant win games.

      Application Process and Eligibility

      • Licenses are issued by the Ministry of Finance, specifically the Department for Games of Chance.
      • Applicants must be legal entities registered in Croatia, typically as joint-stock or limited liability companies.
      • Applicants must demonstrate financial stability, provide proof of sufficient capital, and have no criminal records among key personnel.
      • Detailed business plans, technical documentation, and proof of secure gaming systems are required.
      • For online licenses, servers must be located in Croatia, and technical standards must be met as outlined by the Ministry of Finance.
      • The application process includes submission of all required documents, background checks, and technical system evaluations.

      License Duration and Renewal

      • Casino and slot club licenses are typically granted for a period of 15 years.
      • Betting and online gambling licenses are generally issued for 5 years.
      • Renewal is possible upon application before expiry, subject to continued compliance with all regulatory requirements and payment of renewal fees.
      • Renewal applications may require updated documentation, financial statements, and evidence of ongoing compliance.

      Licensing Costs and Financial Requirements

      • Initial License Fees:
        • Casino license: Substantial one-time fee, with additional annual fees based on location and number of gaming tables/machines.
        • Betting license: One-time application fee, plus annual fees per betting shop or online platform.
        • Slot machine club license: Application fee and annual fees per club and per machine.
        • Online gambling license: Application fee and annual maintenance fee.
      • Financial Guarantees:
        • Applicants must provide financial guarantees or deposits to ensure payment of winnings and regulatory compliance.
        • Minimum share capital requirements apply, which vary by license type (e.g., higher for casinos and online operators).
      • Other Fees:
        • Technical system certification and regular audits incur additional costs.
        • Fees are subject to periodic review and may be increased as part of ongoing regulatory reforms.

      Key Requirements for Obtaining and Maintaining a License

      • Continuous compliance with technical and operational standards set by the Ministry of Finance.
      • Implementation of responsible gambling measures, including player identification and self-exclusion systems (mandatory by 2026).
      • Secure, auditable gaming systems and transparent financial reporting.
      • Regular submission of reports, participation in regulatory audits, and cooperation with supervisory authorities.
      • Non-compliance can result in suspension or revocation of licenses and financial penalties.

      Gambling Tax

      Tax Rates for Gambling Operators in Croatia

      Croatia applies a differentiated taxation system for gambling operators, with tax rates and bases varying depending on the type of gambling activity. The main categories include lotteries, casino games, betting, and online gambling. The following table summarizes the key tax rates currently in force:
      Type of Gambling Tax Base Tax Rate
      Land-based Casinos Gross Gaming Revenue (GGR) 15%
      Sports Betting (Retail) Gross Gaming Revenue (GGR) 20%
      Online Betting Gross Gaming Revenue (GGR) 20%
      Lotteries Turnover 5%
      Slot Machines Gross Gaming Revenue (GGR) 25%
      Online Casino Gross Gaming Revenue (GGR) 15%
      These rates are subject to periodic review, and recent legislative proposals have indicated potential increases, particularly for betting and slot machine operations. Operators should monitor regulatory updates for imminent changes.

      Basis for Taxation

      • Gross Gaming Revenue (GGR): Most gambling activities, including casinos, betting (retail and online), online casino, and slot machines, are taxed based on GGR, which is calculated as total bets minus winnings paid out to players.
      • Turnover: Lotteries are taxed on total turnover, i.e., the total value of tickets sold.

      Tax Reporting and Payment Requirements

      • Gambling operators must file regular tax returns, typically on a monthly basis, declaring their GGR or turnover for the relevant period.
      • Taxes must be paid to the Croatian Tax Administration within specified deadlines, usually by the 20th day of the month following the reporting period.
      • Operators are required to maintain detailed records of all gaming transactions, bets, winnings, and payouts to ensure accurate tax calculation and facilitate audits by the tax authorities.
      • Failure to comply with tax reporting or payment obligations may result in penalties, interest charges, or suspension of the gambling license.

      Tax Incentives, Exemptions, and Special Provisions

      • There are currently no broad tax incentives or exemptions specific to gambling operators in Croatia. All operators are subject to the same tax rates according to the type of gambling activity.
      • Certain charitable lotteries or games organized for non-profit purposes may be eligible for reduced rates or exemptions, subject to approval by the Ministry of Finance.
      • The government periodically reviews the tax regime, and special provisions or temporary relief may be introduced in response to market developments or public policy objectives, but these are not standard.
      Operators should closely follow official communications from the Ministry of Finance and the Croatian Tax Administration for updates on tax rates, reporting procedures, and any new incentives or obligations.

      Prohibited Individuals

      Age Restrictions and Player Identification

      • The minimum legal age for participating in any form of gambling in Croatia is 18 years.
      • Operators are required to implement strict age verification processes to prevent access by minors, both in land-based venues and online platforms.
      • A centralized player identification system is being introduced, which will require all players to present valid identification before participating. This system will apply to all gambling venues and online gambling sites, enabling authorities to monitor player activity and enforce protections.

      Prohibited Activities and Game Restrictions

      • Certain types of gambling activities are prohibited or restricted. For example, the use of self-service betting terminals (SSBTs) in public venues such as restaurants and cafes is banned.
      • Operators must comply with restrictions on the types of games offered, ensuring that only approved games of chance are available to players.

      Advertising and Marketing Limitations

      • Advertising of gambling products is prohibited on television, radio, and other media platforms between 6:00 AM and 11:00 PM.
      • Online gambling advertisements must not be displayed to individuals under the age of 18.
      • Celebrity endorsements, including the use of athletes, social media influencers, and public figures, are banned in all gambling marketing.
      • Advertising in public spaces, including newspapers, magazines, and outdoor billboards, is heavily restricted.
      • Operators are required to ensure that all marketing materials do not target or appeal to minors or vulnerable groups.

      Responsible Gambling and Player Protection Measures

      • A national self-exclusion scheme is being introduced, allowing individuals to voluntarily ban themselves from all gambling activities. This scheme must be operational within a set period after the new regulations take effect.
      • Operators are required to provide clear information on responsible gambling and support resources for problem gamblers.
      • Mandatory player identification will facilitate the enforcement of self-exclusion and responsible gambling measures.
      • There is a strong focus on combating gambling addiction, with initiatives aimed at protecting minors and individuals at risk of gambling-related harm.

      Geographic and Location Restrictions

      • New geographic restrictions will require a significant number of betting shops to relocate or close once their existing hosting rights expire. This is intended to reduce the density of gambling venues in certain areas, especially near schools and other sensitive locations.
      • Gambling venues must comply with zoning requirements to avoid proximity to locations frequented by minors and vulnerable populations.
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        Timeline

        Year/Date Event
        1991 Initial regulation of gambling activities introduced following Croatia’s independence.
        1995 First comprehensive Gambling Act adopted, establishing a legal framework for games of chance and betting.
        2002 Significant amendments to the Gambling Act, introducing stricter licensing requirements and regulatory oversight.
        2010 Further amendments to the Gambling Act, including provisions for online gambling regulation.
        2014 Implementation of new anti-money laundering requirements applicable to gambling operators.
        2017 Adoption of the Act on the Prevention of Money Laundering and Terrorist Financing, impacting gambling sector compliance.
        2024 Major legislative reform initiated, with new laws proposed to strengthen player protection, restrict advertising, and address problem gambling.
        2025 Parliamentary mandate issued for urgent gambling law overhaul; new measures proposed targeting addiction, advertising, and operator obligations.
        2026 (planned) Full implementation of overhauled gambling laws, including centralized player identification, national self-exclusion scheme, and stricter advertising controls.

        Requirements

        Software Certification and Technical Standards

        • All gambling software used by operators in Croatia must be certified by accredited testing laboratories to ensure fairness, randomness, and compliance with prescribed technical standards.
        • The Ministry of Finance issues ordinances and rulebooks specifying technical requirements for different categories of gambling games, including requirements for game logic, payout percentages, and random number generators.
        • Operators must ensure that their systems are capable of secure, real-time data transmission to regulatory authorities for monitoring and supervision purposes.
        • Technical systems must allow for integration with centralized government monitoring and player identification systems.

        Data Protection, Privacy Measures, and Server Location

        • Operators must comply with the General Data Protection Regulation (GDPR) and Croatian data protection laws, ensuring the confidentiality and integrity of player data.
        • Personal and transactional data must be securely stored and protected against unauthorized access, loss, or alteration.
        • There are requirements for secure data encryption both in transit and at rest.
        • Operators are typically required to host their servers within the territory of Croatia or, in some cases, within the European Union, to ensure regulatory oversight and data accessibility for authorities.

        Anti-Money Laundering (AML) and Know Your Customer (KYC) Procedures

        • Operators are subject to the Act on the Prevention of Money Laundering and Terrorist Financing, requiring robust AML procedures and ongoing risk assessment.
        • Mandatory KYC procedures include verification of player identity, age, and source of funds before allowing participation in gambling activities.
        • Operators must implement a centralized player identification system, ensuring all players are uniquely identified and monitored across platforms.
        • Suspicious transactions must be reported to the relevant authorities, and enhanced due diligence is required for high-risk clients or transactions.

        Financial Reporting, Auditing Standards, and Record-Keeping

        • Operators must maintain accurate and up-to-date financial records in accordance with Croatian accounting and auditing standards.
        • Regular submission of financial statements and operational reports to the Ministry of Finance is required for ongoing supervision.
        • Operators are obligated to retain records of all transactions, player activity, and financial flows for a specified period (typically at least five years), ensuring accessibility for regulatory audits and investigations.
        • Independent audits of technical systems and financial operations may be mandated by regulatory authorities.

        Technical Implementation Requirements for Responsible Gambling Tools

        • Operators must integrate technical solutions for responsible gambling, including self-exclusion mechanisms and player protection tools.
        • A national self-exclusion scheme must be supported, allowing individuals to voluntarily ban themselves from all gambling activities, both online and land-based.
        • Systems must enable the enforcement of self-exclusion and provide real-time updates to prevent excluded individuals from accessing gambling services.
        • Operators are required to display responsible gambling information and provide technical means for players to set deposit, loss, and session limits.
        • Technical systems must be capable of flagging and intervening in cases of suspected problem gambling behavior, as per regulatory guidelines.

        Sources

        Primary Regulatory Authorities

        Legislation Resources

        Contact Information

        • Ministry of Finance, Department for Games of Chance Katančićeva 5, 10000 Zagreb, Croatia Phone: +385 1 4591 333 Email: info@mfin.hr
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          Important Information Notice

          Gambling regulations are subject to change. The information provided on this page was accurate at the time of publication, but may not reflect the current regulatory landscape. Always consult official sources for the most up-to-date information before making any gambling-related decisions.

          Last updated: 22 April 2025