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Is Gambling Legal in Luxembourg?

Partially Regulated
Gambling is largely prohibited except for a state monopoly on lotteries and limited casino operations; online gambling is not generally licensed.

Key Information

Last Update 2025
Regulatory Authority Ministry of Justice
License Cost Varies

Regulation by Activity Type

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

Highlights

  • All gambling is generally prohibited under the Gambling Law of 1977, with specific exceptions for state-sanctioned activities.
  • Casino 2000 in Mondorf-les-Bains is the only licensed land-based casino operating in Luxembourg.
  • The Loterie Nationale holds a monopoly on lottery and sports betting, both offline and online.
  • Private operators cannot obtain licenses for online casino, betting, or poker; only the state monopoly is permitted.
  • The Ministry of Justice regulates and issues permits for gambling, with small lotteries overseen by local councils.
  • Online gambling by foreign operators exists in a legal grey area, as no explicit prohibition or regulation is enforced.
  • All proceeds from the National Lottery are directed to charitable causes via a government-supervised foundation.

Legislation

Primary Legislation

The core legal framework governing gambling in Luxembourg is established by the Law of 20 April 1977, commonly referred to as the Gambling Law. This law provides the principal legal definition of gambling as any game of chance involving the possibility of winning a prize. The Gambling Law sets out the general prohibition of gambling activities, while also specifying exceptions and the conditions under which gambling is permitted. In 2018, the Gambling Law was amended to address and regulate online gambling activities, extending its scope to cover digital forms of gaming and betting. All gambling activities, both land-based and online, are subject to strict regulation under this legislative framework.

Regulatory Authority

Oversight and enforcement of gambling legislation in Luxembourg are primarily the responsibility of the Ministry of Justice. This authority is responsible for regulating, supervising, and issuing permits for all gambling operators, including casinos, lotteries, and online gambling services. For lotteries with a total ticket value below a specified threshold, local municipal authorities (the Council of Elders, or Collège des Bourgmestre et Echevins) may grant permits. The National Lottery is regulated by the Oeuvre Nationale de Secours Grande-Duchesse Charlotte, a non-profit foundation operating under the supervision of the Prime Minister and Minister of State.
  • Ministry of Justice: Regulates and oversees all gambling activities, including licensing and compliance monitoring.
  • Oeuvre Nationale de Secours Grande-Duchesse Charlotte: Supervises and administers the National Lottery.
  • Local municipal authorities: Issue permits for small-scale lotteries within their jurisdiction.

License Types

Types of Gambling Licenses Available in Luxembourg

  • Casino License: Luxembourg issues a single land-based casino license. Currently, only Casino 2000 in Mondorf-les-Bains holds this license.
  • Lottery and Sports Betting License: The Loterie Nationale holds the exclusive license for lottery and sports betting operations, including both land-based and online formats. No other operators are eligible for these licenses.
  • Small-Scale Lottery Permits: For lotteries with total ticket sales of €12,500 or less, permits may be issued by local authorities (Council of Elders, Collège des Bourgmestre et Echevins).

Application Process and Eligibility

  • Casino License:
    • The casino license is awarded through a government process managed by the Ministry of Justice.
    • Currently, only one license exists, and there is no open application process for additional casino licenses.
    • Applicants must demonstrate financial stability, integrity, and compliance with strict operational standards.
  • Lottery and Sports Betting License:
    • The license is granted by government decree to the Loterie Nationale, a state-controlled operator.
    • No application process is available for private operators.
  • Small-Scale Lottery Permits:
    • Applicants must submit a request to the local Council of Elders for each event.
    • Permits are typically granted for charitable or community purposes.

Duration, Renewal, and Maintenance of Licenses

  • Casino License:
    • The license is issued for a fixed term determined by the government, with renewal subject to ongoing compliance and review.
    • Renewal conditions include continued adherence to operational, social responsibility, and anti-money laundering requirements.
  • Lottery and Sports Betting License:
    • The license for the Loterie Nationale is ongoing and subject to periodic government review.
  • Small-Scale Lottery Permits:
    • Permits are valid only for the specific event or period stated in the application.
    • New applications are required for each subsequent event.

Licensing Costs and Financial Requirements

  • Casino License:
    • The government sets the licensing fee, which is substantial and reflects the exclusive nature of the license. Exact figures are not publicly disclosed.
    • Operators must demonstrate significant financial resources and provide guarantees for responsible operation and player protection.
  • Lottery and Sports Betting License:
    • As the license is state-controlled and not open to private entities, there are no public application or licensing fees for commercial operators.
  • Small-Scale Lottery Permits:
    • Permit fees are minimal and set by local authorities, typically to cover administrative costs.

Key Requirements for Obtaining and Maintaining a License

  • Casino License:
    • Demonstrate financial stability and integrity of owners and management.
    • Implement robust anti-money laundering measures and social responsibility programs.
    • Comply with strict operational standards and regular government audits.
    • Provide staff training on responsible gambling and player protection.
  • Lottery and Sports Betting License:
    • Exclusive to the Loterie Nationale, which must comply with government oversight and reporting obligations.
  • Small-Scale Lottery Permits:
    • Events must serve charitable or community purposes.
    • Applicants must provide details of the event, ticket sales, and intended use of proceeds.

Summary Table: Gambling License Types in Luxembourg

License Type Eligible Operators Application Process Duration Fees
Casino License Single operator (Casino 2000) Government selection (no open process) Fixed term, renewable Substantial, undisclosed
Lottery & Sports Betting Loterie Nationale (state monopoly) By government decree Ongoing, subject to review Not applicable to private entities
Small-Scale Lottery Permit Charities, community groups Application to local council Per event Minimal, administrative

Gambling Tax

Taxation Basis for Gambling Operators in Luxembourg

  • Luxembourg’s gambling market is highly restricted, with only two main legal operators: Casino 2000 (land-based casino) and the state-owned Loterie Nationale (lottery and sports betting monopoly).
  • Taxation for gambling operators is determined by the type of operation and is governed by specific legal provisions for each monopoly operator.
  • There is no general framework for taxing private or online gambling operators, as such operations are not licensed or permitted in Luxembourg.

Tax Rates for Different Types of Gambling Operations

Gambling Type Operator Tax Base Tax Rate
Land-based Casino Casino 2000 Gross Gaming Revenue (GGR) Progressive rates, typically ranging from 20% to 30% of GGR (exact rates subject to government approval and annual adjustment)
Lottery & Sports Betting Loterie Nationale Net proceeds (after payouts and operating costs) Not subject to standard corporate tax; proceeds are allocated directly to charitable and public interest projects

Tax Reporting and Payment Requirements

  • Casino 2000 is required to calculate and remit gambling taxes based on its GGR, filing periodic reports with the Ministry of Finance and relevant tax authorities.
  • Tax payments are typically made on a monthly or quarterly basis, depending on the operator’s turnover and regulatory requirements.
  • The Loterie Nationale, as a state monopoly, allocates all net proceeds to designated charitable and public interest funds, rather than paying conventional gambling taxes.

Tax Incentives, Exemptions, and Special Provisions

  • There are no special tax incentives or exemptions for gambling operators in Luxembourg, as the market is limited to state-sanctioned monopolies.
  • Private operators and online gambling businesses are not eligible for any tax treatment, as they are not licensed to operate.
  • Proceeds from the Loterie Nationale are exempt from standard corporate taxation, as all profits are directed to public benefit projects.

Prohibited Individuals

Age Restrictions and Identification Requirements

  • The minimum legal age for participation in gambling activities in Luxembourg is 18 years.
  • Operators are required to verify the age and identity of players to ensure compliance with the minimum age requirement.
  • Identification checks are mandatory before granting access to gambling services, both online (where permitted) and at land-based venues.

Prohibited Activities and Game Restrictions

  • Online casino gaming, poker, and most forms of online gambling are prohibited, except for activities offered by the state monopoly operator, Loterie Nationale.
  • Private operators are not permitted to offer online betting, casino games, or lotteries; these are strictly reserved for the state monopoly.
  • Land-based casinos and betting shops are not licensed; gambling is mainly limited to the state lottery and its authorized distributors.
  • Unlicensed and offshore gambling websites are illegal and access to them is restricted.

Advertising and Marketing Limitations

  • Advertising and promotion of gambling services are tightly controlled and generally only permitted for the state monopoly operator.
  • Marketing materials must not target minors or vulnerable persons and must not present gambling as a solution to financial or personal problems.
  • All advertising must include clear warnings about the risks of gambling and information on responsible gambling resources.
  • Promotional activities that encourage excessive or irresponsible gambling behavior are strictly prohibited.

Responsible Gambling Requirements and Player Protection Measures

  • The state monopoly operator is required to implement robust measures to prevent gambling addiction and protect players from excessive losses.
  • Players must have access to self-exclusion tools and the ability to set personal deposit and loss limits.
  • Information about the risks of gambling and available support services for problem gambling must be prominently displayed on all gambling platforms and outlets.
  • Operators must monitor player behavior for signs of problem gambling and intervene when necessary, including by offering guidance or restricting access to gambling services.
  • Transparency in game odds and outcomes is enforced to ensure fair play and informed decision-making.

Geographic and Location Restrictions

  • Gambling activities are only permitted through the state monopoly and its authorized network; unauthorized venues or private gambling establishments are not allowed.
  • Online gambling services are only accessible through the official platforms operated by the state monopoly; access from outside Luxembourg or via unauthorized operators is prohibited.
  • Physical sales of lottery and sports betting products are limited to authorized retail outlets within Luxembourg’s territory.

Timeline

Year/Date Event
1945 Establishment of the Loterie Nationale, granting the state a monopoly over lottery operations in Luxembourg.
1977 First formal legislation on gambling adopted, reinforcing state control and the monopoly of the Loterie Nationale.
2009 Major update to gambling legislation; the law on Loterie Nationale is enacted, confirming the state monopoly and providing the legal basis for expanding into sports betting and online lottery services.
2023 Regulatory framework reaffirmed: only the Loterie Nationale is licensed to provide online gambling services, maintaining the state monopoly on most gambling activities.
2025 Government approves the expansion of sports betting by the Loterie Nationale, including the launch of a new online sports betting platform (loteriesport.lu), aiming to protect consumers and ensure responsible gaming.

Requirements

Software Certification and Technical Standards

  • Only the state monopoly operator, Loterie Nationale, is authorized to provide online gambling services in Luxembourg. All technical systems, including gaming software and platforms, must comply with internal standards set by the operator and any applicable national IT security requirements.
  • Gaming systems must ensure fairness, randomness, and integrity of game outcomes. Regular testing and certification by recognized testing laboratories may be required to verify compliance with these standards.
  • The technical infrastructure must guarantee high availability, reliability, and resilience to ensure uninterrupted service for players.
  • Systems must be capable of generating detailed logs and records of all gaming activities for audit and compliance purposes.

Data Protection, Privacy Measures, and Server Location

  • All personal and financial data collected from players must be processed in accordance with the General Data Protection Regulation (GDPR), ensuring lawfulness, fairness, transparency, and security of data processing.
  • Appropriate technical and organizational measures must be in place to protect player data against unauthorized access, alteration, or loss. This includes data encryption, secure storage, and access controls.
  • Servers hosting player data and gaming operations are typically required to be located within the European Economic Area (EEA) to ensure compliance with EU data protection standards.
  • Operators must provide clear privacy policies and obtain explicit consent from users for data processing activities.

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

  • Comprehensive AML policies must be implemented, including customer due diligence, ongoing monitoring of transactions, and reporting of suspicious activities to the relevant authorities.
  • KYC procedures require verification of player identity, age, and residence before allowing participation in gambling activities. This typically involves collecting and verifying official identification documents and proof of address.
  • Enhanced due diligence measures must be applied for high-risk customers or transactions, including source of funds verification.
  • All AML and KYC processes must be documented and regularly reviewed for effectiveness and compliance with national and EU regulations.

Financial Reporting, Auditing Standards, and Record-Keeping

  • Operators must maintain accurate and transparent records of all financial transactions, including player deposits, withdrawals, wagers, and winnings.
  • Regular internal and external audits are required to ensure the integrity of financial operations and compliance with regulatory requirements.
  • Records must be retained for a minimum period specified by law, typically at least five years, and must be readily accessible for inspection by regulatory authorities.
  • Financial systems must be capable of generating detailed reports for regulatory submissions and compliance monitoring.

Technical Implementation Requirements for Responsible Gambling Tools

  • Systems must provide players with access to responsible gambling tools, including the ability to set deposit, loss, and wagering limits.
  • Mandatory self-exclusion mechanisms must be available, allowing players to exclude themselves from gambling activities for defined periods.
  • Operators must implement real-time monitoring for signs of problematic gambling behavior and trigger interventions or notifications as needed.
  • Clear information and resources on responsible gambling and support services must be prominently displayed on all platforms.

Sources

Primary Regulatory Authorities

Legislation Resources

Contact Information

  • Ministry of Justice of Luxembourg 13, rue Erasme L-1468 Luxembourg Phone: +352 247-84537 Email: info@mj.etat.lu
  • Loterie Nationale Luxembourg 18, rue Léon Laval L-3372 Leudelange Phone: +352 49 10 10 1 Email: info@loterie.lu
  • Casino 2000 5, rue Flammang L-5618 Mondorf-les-Bains Phone: +352 23 61 11 Email: info@casino2000.lu
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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: 21 April 2025