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HK

Is Gambling Legal in Hong Kong?

Prohibited
Gambling is generally prohibited except for activities authorized by the government, mainly through the Hong Kong Jockey Club.
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    Key Information Highlights Legislation Timeline Requirements Sources

    Key Information

    Last Update 2025
    Regulatory Authority Home and Youth Affairs Bureau
    License Cost Varies

    Regulation by Activity Type

    Casinos Prohibited
    Online Casinos Prohibited
    Betting Prohibited
    Online Betting Prohibited
    Lotteries Prohibited
    Poker Prohibited

    Highlights

    • All gambling in Hong Kong is regulated by the Gambling Ordinance and the Betting Duty Ordinance.
    • Only the Hong Kong Jockey Club (HKJC) is licensed to offer horse racing, football, and lottery betting.
    • Online gambling is prohibited except for services provided by the HKJC under strict regulation.
    • Tax rates are high: horse racing betting is taxed up to 75%, football betting at 50%, and lottery at 25%.
    • The government is considering legalizing basketball betting to combat illegal gambling and boost revenue.
    • Wagering on Hong Kong teams or games played locally is banned, and juvenile participation is strictly prohibited.
    • The government maintains a restrictive policy, allowing only a limited number of authorized gambling outlets.
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      Legislation

      Primary Legislation

      The legal framework governing gambling in Hong Kong is structured around several key ordinances and regulations. The core legislation includes:
      • Gambling Ordinance (Cap. 148): This is the principal law regulating gambling activities in Hong Kong. It prohibits all forms of gambling unless specifically authorized by law and sets out the legal definitions, prohibited activities, and penalties for illegal gambling.
      • Betting Duty Ordinance (Cap. 108): This ordinance governs the imposition and collection of betting duties on authorized betting activities, including horse racing, football betting, and the Mark Six Lottery. It also provides the legal basis for the government to authorize certain betting activities and collect associated duties.
      • Lottery Fund Ordinance (Cap. 301): This ordinance establishes the legal framework for the operation of the Mark Six Lottery and the allocation of lottery proceeds for charitable and community purposes.
      Currently, only betting on horse racing, football, and the Mark Six Lottery is permitted under these laws. Any other gambling activity is considered illegal unless explicitly authorized. The government is considering legislative amendments to expand the scope of legal betting to include basketball, but as of now, such changes are still under consultation and not yet enacted.

      Regulatory Authority

      Oversight and regulation of gambling activities in Hong Kong are primarily the responsibility of designated government bodies and commissions:
      • Secretary for Home and Youth Affairs: Holds statutory authority to grant approval for authorized gambling activities and oversees the implementation of gambling-related ordinances.
      • Hong Kong Jockey Club (HKJC): Operates as the sole authorized operator for horse racing, football betting, and the Mark Six Lottery under government regulation.
      • Betting and Lotteries Commission: Advises the government on the regulation of betting and lottery activities, monitors compliance, and ensures that authorized operators adhere to legal and regulatory requirements.
      These authorities are tasked with ensuring that all gambling activities remain within the legal framework, maintaining strict control over the market, and advising on potential legislative changes.

      License Types

      Types of Gambling Licenses in Hong Kong

      Hong Kong operates a highly restrictive gambling licensing system, with only a limited number of authorized activities and a single licensed operator. As of April 2025, the only organization authorized to hold gambling licenses is the Hong Kong Jockey Club (HKJC). The available licenses cover:
      • Horse Race Betting License – Authorizes the operation of pari-mutuel betting on horse races.
      • Football Betting License – Permits betting on football (soccer) matches.
      • Mark Six Lottery License – Covers the operation of the government lottery.
      • Proposed Basketball Betting License – Currently under public consultation, this would allow basketball betting, subject to future legislative amendments and licensing conditions.

      Application Process

      • Licenses are not open for general application; only the HKJC is eligible to apply for and hold gambling licenses.
      • For new types of betting (such as the proposed basketball betting license), the HKJC must submit a formal proposal to the government.
      • The Secretary for Home and Youth Affairs is the authority empowered to grant or renew licenses, following legislative amendments and public consultation where applicable.
      • Licenses are issued for a fixed term, with renewal subject to compliance and policy review.

      Duration and Renewal Conditions

      • Licenses are typically granted for a specified term, which is determined by the government at the time of issuance.
      • Renewal is contingent on continued compliance with all licensing conditions, responsible gambling obligations, and any additional requirements set by the regulatory authority.
      • Renewal applications are reviewed by the Secretary for Home and Youth Affairs, who may impose new conditions or refuse renewal based on policy considerations or compliance history.

      Eligibility Criteria

      • Currently, only the Hong Kong Jockey Club is eligible to be licensed for betting and lottery operations.
      • Other private entities or individuals are not permitted to apply for or hold gambling licenses for these activities.
      • The HKJC must demonstrate operational integrity, financial stability, and robust responsible gambling measures.

      Licensing Costs and Financial Requirements

      • Specific licensing fees for the HKJC are not publicly disclosed, as the licensing arrangement is unique and negotiated directly with the government.
      • The HKJC is required to maintain substantial financial resources to support its operations and to comply with any financial conditions imposed by the government.
      • For any new license (such as basketball betting), the government may set additional financial requirements or fees as part of the licensing process.

      Key Requirements for Obtaining and Maintaining a License

      • Strict adherence to responsible gambling practices, including public education and support services for problem gambling.
      • Prohibition on bets involving Hong Kong teams or games played locally (for sports betting licenses).
      • Ban on juvenile participation and credit betting.
      • Full compliance with all conditions set out in the license and any relevant government regulations.
      • Regular reporting and auditing as required by the regulatory authority.

      Summary Table: Hong Kong Gambling Licensing System

      License Type Eligible Applicant Application Method Duration Key Conditions
      Horse Race Betting Hong Kong Jockey Club Direct proposal to government Fixed term (as set by government) Responsible gambling, age limits, compliance reporting
      Football Betting Hong Kong Jockey Club Direct proposal to government Fixed term No local teams, no juvenile betting, no credit betting
      Mark Six Lottery Hong Kong Jockey Club Direct proposal to government Fixed term Responsible gambling, compliance reporting
      Basketball Betting (proposed) Hong Kong Jockey Club Proposal under consultation To be determined No local teams, age restrictions, no credit betting

      Gambling Tax

      Tax Rates for Gambling Operators in Hong Kong

      Gambling in Hong Kong is strictly regulated, with only a limited number of authorized gambling activities permitted. The Hong Kong Jockey Club (HKJC) is the sole licensed operator for horse racing, football betting, and the Mark Six lottery. The taxation system for gambling operators is governed by the Betting Duty Ordinance.
      Type of Gambling Tax Rate Basis of Taxation
      Horse Racing (On-course Betting) 72.5% of net stake receipts Net stake receipts (i.e., turnover minus dividends paid to bettors)
      Horse Racing (Off-course Betting) 72.5% of net stake receipts Net stake receipts
      Football Betting 50% of net stake receipts Net stake receipts
      Mark Six Lottery 25% of turnover Total turnover (total amount wagered)

      Basis for Taxation

      • Horse racing and football betting are taxed on the basis of net stake receipts, which means the total amount wagered minus the winnings paid out to bettors.
      • The Mark Six lottery is taxed on the total turnover, i.e., the total amount wagered on lottery tickets without deduction of prizes paid.

      Tax Reporting and Payment Requirements

      • The HKJC, as the sole licensed operator, is required to calculate and remit betting duty to the Hong Kong government.
      • Payment of betting duty is typically made on a weekly basis for horse racing and football betting, and on a per-draw basis for the Mark Six lottery.
      • Detailed records of all bets, payouts, and turnover must be maintained and submitted to the relevant government authorities for auditing and verification.
      • Operators must comply with all prescribed forms and deadlines as stipulated by the Betting Duty Ordinance and the Inland Revenue Department.

      Tax Incentives, Exemptions, and Special Provisions

      • There are no general tax incentives or exemptions for gambling operators in Hong Kong.
      • The tax rates and payment structure are fixed and apply uniformly to the HKJC’s gambling operations.
      • Any changes to tax rates or special provisions would require legislative amendment to the Betting Duty Ordinance.
      No other entities are authorized to operate gambling activities, and the above tax regime applies exclusively to the HKJC’s licensed operations.

      Prohibited Individuals

      Age Restrictions and Identification Requirements

      • The minimum legal age for participating in any authorized gambling activity in Hong Kong is 18 years old.
      • Operators are required to verify the age and identity of all participants to prevent underage gambling. This includes mandatory identification checks at betting outlets and for online or telephone betting accounts.
      • Juvenile participation in any form of betting, including proposed new markets such as basketball, is strictly prohibited.

      Prohibited Gambling Activities and Game Restrictions

      • All gambling activities are illegal in Hong Kong unless specifically authorized by the government.
      • Currently, only horse race betting, football betting, and the Mark Six Lottery—operated exclusively by the Hong Kong Jockey Club—are permitted.
      • Casino gambling, slot machines, poker rooms, and most forms of private or commercial betting are strictly forbidden.
      • There are specific bans on betting involving Hong Kong teams or games played locally, particularly in the context of the proposed basketball betting expansion.
      • Credit betting is generally prohibited, with restrictions in place to prevent gambling on borrowed funds.

      Advertising and Marketing Limitations

      • Advertising of unauthorized gambling activities is strictly prohibited.
      • Marketing and promotional activities for legal gambling must not target minors or vulnerable groups.
      • All advertising must comply with strict content guidelines, avoiding any suggestion that gambling is a way to solve financial or personal problems.
      • Operators are required to include responsible gambling messages and information about support services in all promotional materials.

      Responsible Gambling and Player Protection Measures

      • Operators must provide clear information about the risks of gambling and promote responsible gambling practices at all points of sale and on digital platforms.
      • Self-exclusion programs are available, allowing individuals to voluntarily ban themselves from participating in gambling activities.
      • Staff at authorized gambling venues are trained to identify and assist problem gamblers, including providing information on counseling and support services.
      • Limits on betting amounts may be imposed to help prevent excessive gambling and financial harm.
      • Operators are required to monitor betting behavior for signs of problem gambling and intervene where necessary.

      Geographic and Location Restrictions

      • Authorized gambling can only take place at designated venues operated by the Hong Kong Jockey Club or via its official online and telephone channels.
      • There are a limited number of physical betting outlets, and no casinos or slot parlors are permitted anywhere in Hong Kong.
      • Organizing or participating in unauthorized gambling activities, including private gaming rooms or unlicensed online platforms, is illegal regardless of location.
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        Timeline

        Year/Date Event
        1884 The Hong Kong Jockey Club is established, eventually becoming the sole legal operator of horse racing, lotteries, and football betting in Hong Kong.
        1977 The Gambling Ordinance (Cap. 148) is enacted, creating the primary legal framework for regulating gambling and restricting all gambling activities except those expressly authorized by the government.
        2002 Football betting is legalized and brought under the monopoly of the Hong Kong Jockey Club, expanding the scope of regulated gambling activities.
        2003 The Gambling (Amendment) Ordinance is passed to strengthen enforcement against illegal gambling, particularly targeting unauthorized online and telephone betting.
        2006 Further amendments to the Gambling Ordinance increase penalties for illegal gambling and enhance regulatory controls.
        2016 The Hong Kong Jockey Club achieves record-breaking turnover, highlighting the scale and significance of regulated gambling under the existing legal framework.

        Requirements

        Software Certification and Technical Standards

        • All gambling software systems used by authorized operators, such as the Hong Kong Jockey Club (HKJC), must meet stringent technical standards to ensure fairness, security, and integrity of betting operations.
        • Software and systems must undergo independent third-party testing and certification to verify compliance with technical requirements, including random number generation, payout calculations, and system reliability.
        • Operators are required to maintain robust IT infrastructure with redundancy and failover mechanisms to guarantee system availability and minimize downtime.
        • Technical systems must support secure transaction processing, including encryption of data in transit and at rest.
        • System updates and changes are subject to approval and must follow strict change management procedures, including testing in a controlled environment before deployment to production.

        Data Protection, Privacy Measures, and Server Location Requirements

        • Operators must comply with Hong Kong’s Personal Data (Privacy) Ordinance, ensuring all personal and transactional data is collected, stored, and processed lawfully and securely.
        • Data protection measures include access controls, encryption, regular security audits, and secure data disposal procedures.
        • Customer data must be stored on servers located within Hong Kong or in jurisdictions that provide an equivalent level of data protection as required by Hong Kong law.
        • Operators must implement robust cybersecurity protocols to prevent unauthorized access, data breaches, and cyberattacks.
        • Privacy policies must be transparent and accessible, informing customers of data usage, retention periods, and rights regarding their personal information.

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

        • Operators are required to implement comprehensive AML programs in line with Hong Kong’s Anti-Money Laundering and Counter-Terrorist Financing Ordinance.
        • KYC procedures must include customer identity verification before account creation or significant transactions, using reliable and independent documentation.
        • Ongoing monitoring of customer transactions is mandatory to detect suspicious activity, with automated systems in place for pattern recognition and anomaly detection.
        • Operators must conduct enhanced due diligence for high-risk customers and report suspicious transactions to the Joint Financial Intelligence Unit (JFIU).
        • Staff must receive regular AML and KYC training, and all procedures should be documented and periodically reviewed for effectiveness.

        Financial Reporting, Auditing Standards, and Record-Keeping Requirements

        • Operators must maintain accurate and up-to-date financial records in accordance with Hong Kong Financial Reporting Standards (HKFRS).
        • Annual financial statements must be audited by independent, qualified auditors and submitted to the relevant regulatory authorities.
        • Comprehensive transaction logs, customer activity records, and system access logs must be retained for a minimum period specified by law, typically at least five years.
        • Operators are required to implement internal controls to prevent fraud, misappropriation of funds, and unauthorized transactions.
        • All financial and operational records must be readily available for inspection by regulators upon request.

        Technical Implementation Requirements for Responsible Gambling Tools

        • Operators must integrate responsible gambling features into their platforms, including self-exclusion, deposit limits, loss limits, and session time reminders.
        • Systems must allow customers to set personal gambling limits and provide mechanisms for voluntary self-exclusion, with immediate effect upon activation.
        • Responsible gambling information and support resources must be prominently displayed and easily accessible on all digital and retail platforms.
        • Technical systems must monitor player behavior for signs of problematic gambling and trigger interventions or notifications as required by regulatory guidelines.
        • Operators are required to report on the effectiveness and usage of responsible gambling tools as part of regular compliance reporting.

        Sources

        Primary Regulatory Authorities

        Legislation Resources

        Contact Information

        • Home and Youth Affairs Bureau (HYAB): 21/F, West Wing, Central Government Offices, 2 Tim Mei Avenue, Tamar, Hong Kong Tel: +852 3509 7000 Email: enquiry@hyab.gov.hk
        • The Hong Kong Jockey Club: 1 Sports Road, Happy Valley, Hong Kong Tel: +852 1817 Contact form: Contact HKJC
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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: 17 July 2025