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Is Gambling Legal in Germany?

Regulated
Online and land-based gambling are regulated under the Interstate Treaty on Gambling 2021 with strict licensing, deposit, and stake limits. Some online casino games remain subject to state-level rules.
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    Key Information Highlights Legislation Timeline Requirements Sources

    Key Information

    Last Update 2025
    Regulatory Authority Gemeinsame Glücksspielbehörde der Länder (GGL)
    License Cost Varies

    Regulation by Activity Type

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

    Highlights

    • Germany regulates gambling under the Interstate Treaty on Gambling (GlüStV 2021), which legalizes and standardizes online gambling nationwide.
    • The Gemeinsame Glücksspielbehörde der Länder (GGL) is the central authority for licensing and supervising all online gambling activities.
    • A strict €1,000 monthly deposit limit applies to players across all licensed operators, with higher limits requiring extensive verification.
    • Online slot stakes are capped at €1 per spin, with a mandatory five-second delay between spins to promote responsible gambling.
    • A 5.3% tax is levied on all stakes for sports betting, virtual slots, and online poker, impacting operator margins and player returns.
    • Live casino games and progressive jackpot slots are banned; online table games are regulated on a state-by-state basis, not nationally.
    • Operators must implement robust player ID verification, participate in national self-exclusion (OASIS), and adhere to strict advertising restrictions.
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      Legislation

      Primary Legislation

      The legal framework governing gambling in Germany is primarily established by the following key laws and regulatory acts:
      • Interstate Treaty on Gambling 2021 (Glücksspielstaatsvertrag 2021, GlüStV 2021): This is the central piece of legislation that regulates all forms of gambling—both land-based and online—across Germany’s 16 federal states. The GlüStV 2021 came into force on July 1, 2021, and provides a unified legal basis for the operation, supervision, and enforcement of gambling activities nationwide. It covers online casinos, sports betting, virtual slot machines, online poker, and state lotteries, setting out strict rules for player protection, advertising, and anti-money laundering measures.
      • Money Laundering Act (Geldwäschegesetz, GwG): This federal law applies to all gambling operators and brokers, imposing comprehensive obligations to prevent money laundering and terrorist financing. It requires the implementation of due diligence, customer verification, transaction monitoring, and reporting of suspicious activities.
      • State-Level Gambling Legislation: While the GlüStV 2021 harmonizes most aspects of gambling regulation, each federal state (Land) retains authority over certain land-based gambling activities, such as casinos, slot machine halls, and betting shops. State-specific laws and administrative regulations supplement the national framework, particularly for land-based gambling.
      These laws collectively define the scope of legal gambling, the types of permitted activities, and the obligations of operators, with special emphasis on consumer protection, responsible gambling, and market integrity.

      Regulatory Authority

      Oversight and enforcement of gambling laws in Germany are carried out by a combination of national and state-level regulatory bodies:
      • Joint Gambling Authority of the Federal States (Gemeinsame Glücksspielbehörde der Länder, GGL): Established as the central regulatory authority, the GGL is responsible for the nationwide supervision and licensing of online gambling operators, including online casinos, sports betting, virtual slot machines, and online poker. The GGL also maintains the official whitelist of licensed operators, enforces compliance, and coordinates measures against illegal gambling.
      • State-Level Regulatory Authorities: Each of Germany’s 16 federal states has its own authority responsible for regulating and supervising land-based gambling activities within its territory. These authorities issue local licenses, monitor physical gambling establishments, and enforce state-specific regulations.
      Together, these authorities ensure the implementation and enforcement of the Interstate Treaty and related legislation, oversee the licensing process, monitor compliance, and coordinate actions to prevent illegal gambling and protect consumers.

      License Types

      Types of Gambling Licenses in Germany

      • Online Sports Betting License: Permits operators to offer fixed-odds sports betting online throughout Germany. There is no set cap on the number of licenses.
      • Virtual Slot Machine License: Allows the operation of online slot machine games (virtual slots). These are regulated nationally and can be offered by any operator meeting the requirements.
      • Online Poker License: Enables the provision of online poker games. This is also regulated nationally with no set limit on the number of licenses.
      • Online Casino Table Games License: Covers games such as online roulette and blackjack. These are regulated at the state level, and individual federal states decide whether to issue licenses to private operators or maintain a state monopoly. The number of licenses is usually limited per state (e.g., Schleswig-Holstein and North Rhine-Westphalia plan to grant a small number of licenses).

      Application Process and Procedures

      • All national licenses (sports betting, virtual slots, online poker) are issued by the Joint Gambling Authority of the Federal States (Gemeinsame Glücksspielbehörde der Länder, GGL), based in Saxony-Anhalt.
      • Applications are submitted directly to the GGL via its online portal, with detailed documentation required on legal, technical, and financial aspects of the business.
      • For online casino table games, applications are submitted to the relevant state authority in states that permit private licenses. The process and requirements can vary by state.
      • Key steps include submission of business plans, technical system documentation, proof of reliability and integrity, and evidence of player protection measures.
      • Integration with national databases (for player exclusion, activity monitoring, and deposit limits) is mandatory for all license types.
      • Processing times vary but typically range from several months to over a year, depending on the completeness of the application and the type of license.

      License Duration and Renewal

      • Licenses are generally granted for a period of five years.
      • Renewal applications must be submitted before the license expires, demonstrating continued compliance with all regulatory requirements.
      • Renewal is subject to a review of the operator’s conduct, financial stability, and ongoing adherence to technical and player protection standards.

      Eligibility Criteria

      • Applicants must be legal entities established within the European Economic Area (EEA).
      • Managers and key personnel must demonstrate reliability, integrity, and a clean criminal record.
      • Operators must have robust anti-money laundering (AML) and responsible gambling policies in place.
      • Technical systems must be certified by independent testing bodies to ensure fairness and security.
      • Operators must not have previously violated gambling laws or had licenses revoked in Germany or other jurisdictions.

      Financial Requirements and Licensing Costs

      • Applicants must demonstrate sufficient financial resources and liquidity to operate safely and reliably.
      • Mandatory security deposits or guarantees are required, the amount of which depends on the license type and projected turnover.
      • Application fees for each license type are set by the GGL and are non-refundable. The fees can range from several thousand to tens of thousands of euros, depending on the complexity and scale of the operation.
      • Annual supervisory fees are charged to cover the costs of ongoing regulatory oversight. These are typically calculated based on the operator’s gross gaming revenue.
      • For online casino table games, individual states may set additional or differing fee structures and financial requirements.

      Key Requirements for Obtaining and Maintaining a License

      • Full integration with national player exclusion (OASIS), activity monitoring, and deposit limit databases (LUGAS).
      • Strict adherence to player protection measures, including deposit and stake limits (e.g., €1,000 monthly deposit limit, €1 stake limit per spin for slots).
      • Comprehensive identity verification (KYC) and anti-money laundering protocols.
      • Transparent and secure handling of player funds, with segregation from operational accounts.
      • Regular reporting to the GGL on player activity, technical incidents, and compliance matters.
      • Continuous technical certification and audits to ensure game fairness and data security.
      • Immediate notification to the regulator of any material changes in business structure, ownership, or key personnel.
      • Prohibition of unauthorized game types (e.g., live casino games and progressive jackpots are not permitted under current national regulation for virtual slots).

      Summary Table: Main License Types and Key Features

      License Type Regulator Duration Application Fee Renewal Eligibility Special Notes
      Online Sports Betting GGL (national) 5 years Several thousand euros (varies) Yes, subject to review EEA entity, fit & proper Unlimited licenses
      Virtual Slot Machines GGL (national) 5 years Several thousand euros (varies) Yes, subject to review EEA entity, fit & proper Unlimited licenses; strict limits
      Online Poker GGL (national) 5 years Several thousand euros (varies) Yes, subject to review EEA entity, fit & proper Unlimited licenses
      Online Casino Table Games State authority Varies (usually 5 years) Set by state, typically higher Yes, subject to review EEA entity, fit & proper Limited licenses per state

      Gambling Tax

      Tax Rates for Gambling Operators in Germany

      Type of Gambling Tax Rate Tax Base
      Online Sports Betting 5.3% Player stakes (turnover)
      Virtual Slot Machines 5.3% Player stakes (turnover)
      Online Poker 5.3% Player stakes (turnover)
      Land-based Casinos Varies by state (typically 20–80%) Gross gaming revenue (GGR)
      Lotteries 16.66% Ticket sales (turnover)

      Basis for Taxation

      • For online sports betting, virtual slots, and online poker, the tax is calculated on total player stakes (turnover), not on gross gaming revenue (GGR).
      • Land-based casinos are generally taxed on GGR, but the exact rate and calculation method depend on the federal state.
      • Lotteries are taxed on total ticket sales (turnover).

      Tax Reporting and Payment Requirements

      • Operators must register with the relevant tax authorities before commencing operations.
      • Taxes on online gambling (sports betting, slots, poker) must be calculated and paid monthly.
      • Operators are required to submit detailed monthly tax returns, specifying the total amount wagered by players and the resulting tax due.
      • Payments must be made to the tax office responsible for the operator’s registered location or, for foreign operators, to the central tax office designated for gambling taxes.
      • Failure to report or pay taxes can result in penalties, interest, and potential loss of license.

      Tax Incentives, Exemptions, and Special Provisions

      • No specific tax incentives or exemptions currently apply to online gambling operators under the federal system.
      • Land-based casinos may benefit from certain deductions or allowances, but these vary by state and are subject to local regulation.
      • Social gaming is not taxed, as it does not fall under the legal definition of gambling in Germany.
      • Operators must comply with all tax obligations regardless of their location if their services are accessible to German players.

      Key Points

      • The 5.3% tax on player stakes for online betting, slots, and poker is uniform across Germany and applies regardless of operator location.
      • Land-based gambling taxation is determined at the state level and can vary significantly.
      • There are currently no broad-based tax reliefs or incentives for licensed online gambling operators.
      • Strict monthly reporting and payment schedules are enforced; non-compliance can lead to severe sanctions.

      Prohibited Individuals

      Age Restrictions and Identification Requirements

      • The minimum legal age for all forms of gambling in Germany is 18 years.
      • Operators are required to conduct strict age verification during the registration process. Players must provide government-issued identification (such as a passport or ID card) to prove their age and identity before they can participate in any gambling activities.
      • Operators must use approved identity verification service providers and ensure that no gambling account is activated until the verification process is complete.
      • Parental controls and technical measures are encouraged to prevent minors from accessing gambling platforms.

      Prohibited Gambling Activities and Game Restrictions

      • Live casino games (such as live dealer roulette or blackjack) and progressive jackpot slots are prohibited for online operators in most German states.
      • Online table games (e.g., roulette, blackjack, baccarat) are only permitted in certain states that have enacted specific regulations; in other states, these games remain prohibited or are only available via state-run monopolies.
      • Virtual slot machines are subject to a €1 maximum stake per spin and a mandatory five-second interval between spins.
      • Autoplay features and jackpots are not allowed for online slots.
      • Live betting on sports is significantly restricted; only certain types of live bets are permitted, with many forms disallowed to reduce gambling risks.
      • There is a blanket monthly deposit limit of €1,000 per player across all licensed operators. This limit can only be increased if the player undergoes a comprehensive financial background check and sets personal loss and stake limits.

      Advertising and Marketing Limitations

      • Advertising for virtual slots, online poker, and casino games is prohibited on TV, radio, and online platforms between 6:00 and 21:00.
      • All gambling advertising must not target minors or vulnerable groups, nor feature them in any form.
      • Influencer marketing for online slots is strictly forbidden.
      • Operators must submit their advertising and marketing concepts for regulatory approval before launching campaigns.
      • All advertisements must include clear and prominent responsible gambling messages and information about self-exclusion options.
      • Bonuses and promotional offers cannot be misleading and must not encourage excessive gambling behavior.

      Responsible Gambling Requirements and Player Protection Measures

      • Operators must participate in the national OASIS self-exclusion system, allowing players to exclude themselves from all licensed gambling platforms across Germany.
      • Players can set personal limits for deposits, losses, and playing time. These limits must be easy to adjust downward at any time, with increases subject to a waiting period.
      • Operators are required to monitor player behavior for signs of problem gambling and intervene when necessary, including providing information about counseling and support services.
      • Mandatory display of playing time, account balance, and loss/win statistics during sessions to promote transparency and self-awareness.
      • Operators must provide access to responsible gambling tools, such as reality checks, time-outs, and permanent account closure options.
      • Strict anti-money laundering (AML) and Know Your Customer (KYC) procedures are enforced, including transaction monitoring and reporting of suspicious activity.

      Geographic and Location Restrictions

      • Land-based gambling venues (casinos, betting shops) are subject to state-level licensing and zoning regulations, including minimum distance requirements from schools and youth facilities.
      • Online gambling operators must hold a German license to offer services to residents; access to unlicensed offshore platforms is prohibited and subject to enforcement actions, including website blocking and payment restrictions.
      • Some gambling products, such as online table games, are only available in certain federal states that have enacted their own regulatory frameworks; availability may vary by location within Germany.
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        Timeline

        Year/Date Event
        2008 First Interstate Treaty on Gambling (Glücksspielstaatsvertrag) comes into force, establishing a state monopoly on most forms of gambling and prohibiting online gambling except for sports betting and lotteries.
        2012 Second Interstate Treaty on Gambling is signed, introducing a sports betting licensing regime and allowing Schleswig-Holstein to issue its own online casino and poker licenses, creating a fragmented regulatory landscape.
        2019 Third Interstate Treaty on Gambling is agreed upon, introducing a transitional regime for online sports betting, but maintaining the ban on online casino games except in Schleswig-Holstein.
        March 2020 German states agree on the Fourth Interstate Treaty on Gambling (Glücksspielstaatsvertrag 2021), paving the way for nationwide regulation of online gambling.
        July 1, 2021 The Fourth Interstate Treaty on Gambling (GlüStV 2021) enters into force, legalizing and regulating online slots, online poker, and online sports betting across all 16 German states for the first time. Strict player protection measures and licensing requirements are introduced.
        January 1, 2023 The Gemeinsame Glücksspielbehörde der Länder (GGL), the new national gambling regulator based in Saxony-Anhalt, assumes full responsibility for licensing and supervising all online gambling activities in Germany.
        2024 Schleswig-Holstein expands its regulation of online table games, and North Rhine-Westphalia announces plans to start the tender process for online table games in mid-2025, reflecting ongoing regional developments within the national framework.

        Requirements

        Software Certification and Technical Standards

        • All gambling software used by operators in Germany must be certified by an independent, accredited testing laboratory. Certification ensures compliance with technical standards set by the German regulator (GGL) for randomness, fairness, and integrity of games.
        • Game certification numbers must be provided and registered with the regulator, and only approved games may be offered to players.
        • Operators must implement technical controls such as a maximum stake limit of €1 per spin for online slots and a mandatory minimum spin duration of 5 seconds. Autoplay functions and jackpots are prohibited for online slots.
        • Operators are required to integrate with national databases (such as LUGAS and OASIS) for monitoring player activity and ensuring compliance with regulatory measures like deposit limits and player exclusions.
        • Technical systems must prevent simultaneous play on multiple domains or websites by the same player.

        Data Protection, Privacy Measures, and Server Location

        • Operators must comply with the General Data Protection Regulation (GDPR) and German data protection laws, ensuring robust security and privacy measures for all player data.
        • Player data must be stored securely, typically on servers located within the European Economic Area (EEA), and must be accessible to the German regulator upon request.
        • Technical measures such as advanced encryption, firewalls, and multi-layered cybersecurity protocols are required to protect against unauthorized access and data breaches.
        • Operators must develop and maintain internal processes for regular security reviews and updates to address emerging threats.
        • Integration with national databases (LUGAS, OASIS) must be technically secure, with data transfers protected and compliant with privacy requirements.

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

        • Operators must implement robust AML procedures in line with the EU’s Fourth and Fifth Anti-Money Laundering Directives (AMLD4/AMLD5) and German AML laws.
        • Comprehensive KYC checks are mandatory at registration or within 72 hours, including identity verification using approved service providers. This includes verifying the player’s name, address, date of birth, and, where applicable, source of funds.
        • Ongoing transaction monitoring must be in place to detect suspicious activity and patterns indicative of money laundering or fraud.
        • Operators must have systems for reporting suspicious transactions to the relevant authorities and must train staff on AML compliance and detection protocols.
        • Technical integration with AML and KYC databases is required to automate checks and ensure real-time compliance.

        Financial Reporting, Auditing Standards, and Record-Keeping

        • Operators must maintain accurate and comprehensive financial records, including all player transactions, deposits, withdrawals, and gaming activity.
        • Regular financial reporting to the regulator is required, with reports submitted in prescribed formats and at specified intervals.
        • Operators are subject to independent financial audits, and technical systems must support audit trails and allow for verification of all transactions.
        • All records, including player data and transaction logs, must be retained for a minimum period as specified by the regulator (typically at least five years).
        • Operators must ensure that their technical systems can generate, store, and export data in a manner that facilitates regulatory oversight and auditing.

        Technical Implementation Requirements for Responsible Gambling Tools

        • Operators are required to implement technical tools for responsible gambling, including mandatory deposit limits (€1,000 per month across all operators) and loss/stake limits.
        • Players must have access to self-exclusion tools, and all operators must integrate with the national OASIS exclusion database to enforce player exclusions across the market.
        • Technical systems must enable players to set personal limits on deposits, losses, and playing time, and these limits must be enforced automatically.
        • Operators must provide real-time notifications and warnings to players about their gambling activity, including reminders of limits and responsible gambling information.
        • All responsible gambling tools must be easily accessible and function seamlessly across all devices and platforms.

        Sources

        Primary Regulatory Authorities

        Legislation Resources

        • Gesetze im Internet – Federal Ministry of Justice’s portal for all German laws, including gambling legislation.

        European Union Resources

        • EUR-Lex – Official EU legislation database, including directives and documents relevant to gambling regulation.
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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: 18 April 2025