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Is Gambling Legal in Portugal?

Regulated
Gambling is fully regulated with strict licensing requirements for both land-based and online operators; enforcement targets illegal operators.
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    Key Information Highlights Legislation Timeline Requirements Sources

    Key Information

    Last Update 2025
    Regulatory Authority Serviço de Regulação e Inspeção de Jogos (SRIJ)
    License Cost Varies

    Regulation by Activity Type

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

    Highlights

    • Portugal regulates gambling through the Legal Regime of Online Gambling and Betting (RJO) and specific land-based laws.
    • The Serviço de Regulação e Inspeção de Jogos (SRIJ) is the national gambling regulatory authority.
    • Online gambling requires a separate license for each game type; land-based and online licenses are distinct.
    • Operators must provide a €500,000 guarantee per license to cover player liabilities and legal obligations.
    • Gambling winnings are taxed at source; online operators pay a progressive tax based on gross gaming revenue.
    • Live online casinos are currently prohibited, though this is under frequent review and debate.
    • Portugal enforces strict measures against illegal operators, including fines, website blocking, and criminal referrals.
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      Legislation

      Primary Legislation

      Portugal’s gambling sector is governed by a structured legal framework that distinguishes between land-based and online gambling activities. The core legislation includes:
      • Decree-Law No. 422/89 (Legal Regime of Games of Fortune and Chance): This law, commonly known as the “Gambling Law,” establishes the general legal regime for land-based games of chance, such as casino games, lotteries, and betting. It defines the scope of permitted gambling activities and sets the foundation for regulatory oversight.
      • Decree-Law No. 66/2015 (Regime Jurídico dos Jogos e Apostas Online – RJO): This is the principal statute for online gambling and betting. It sets the legal framework for the operation, regulation, and supervision of online gambling services, including sports betting, casino games, poker, and other online games of chance.
      • Decree-Law No. 31/2011: This law governs the operation of the national lottery and mutual betting, primarily managed by Santa Casa da Misericórdia de Lisboa, which holds a monopoly over certain lottery and betting products.
      These legislative acts collectively define the legal boundaries for gambling activities in Portugal, specifying which activities are permitted, regulated, and subject to state oversight. They provide the legal basis for further regulations and administrative acts issued by the competent authorities.

      Regulatory Authority

      The primary regulatory authority responsible for the supervision and enforcement of gambling laws in Portugal is the Serviço de Regulação e Inspeção de Jogos (SRIJ), operating under the Turismo de Portugal, I.P. The SRIJ is tasked with regulating, supervising, and inspecting all gambling activities, both land-based and online, to ensure compliance with the established legal framework.
      • Supervises and enforces compliance with gambling legislation and regulations.
      • Issues regulations and technical standards for gambling operations.
      • Monitors and investigates illegal gambling activities, including enforcement actions against unlicensed operators.
      • Promotes responsible gambling and consumer protection measures.

      License Types

      Types of Gambling Licenses in Portugal

      • Online Gambling Licenses: Portugal offers specific licenses for different online gambling activities, including:
        • Online games of chance (casino games such as slots, roulette, blackjack, and poker)
        • Online sports betting (fixed-odds and pool betting)
        • Online horse race betting
        • Online bingo
        • Other approved online games (e.g., crash games)
        Each category requires a separate license; there is no universal license covering all verticals.
      • Land-Based Gambling Licenses: Land-based casinos, betting shops, and bingo halls require distinct licenses, but these are not covered by the same procedures as online gambling and are subject to separate regulatory processes.

      Application Process and Duration

      • Regulatory Authority: The Serviço de Regulação e Inspeção de Jogos (SRIJ) is the competent authority for issuing and supervising gambling licenses.
      • Application Submission: Applications must be submitted electronically via the SRIJ portal. Applicants must specify the type of gambling activity and provide detailed documentation, including corporate information, technical systems, internal controls, and responsible gambling measures.
      • Eligibility: Both domestic and foreign companies can apply, provided they have a registered office or branch in Portugal and meet all regulatory requirements.
      • Evaluation: The SRIJ conducts a comprehensive assessment of the applicant’s suitability, financial stability, technical capacity, and compliance with anti-money laundering and player protection standards.
      • License Duration: Online gambling licenses are typically granted for an initial period of three years and may be renewed for successive periods of up to five years, subject to continued compliance.

      Renewal Conditions

      • License renewal requires the operator to demonstrate ongoing compliance with all regulatory obligations, including technical standards, financial guarantees, and responsible gambling commitments.
      • Renewal applications must be submitted before the expiry of the current license, accompanied by updated documentation and payment of renewal fees.

      Licensing Costs and Financial Requirements

      • Application Fee: A non-refundable application fee is payable upon submission. The exact amount may vary depending on the type of license and is set by the SRIJ.
      • Annual License Fee: Operators must pay an annual fee for each license held. The fee amount depends on the type of gambling activity and the scope of operations.
      • Financial Guarantees:
        • Operators must provide a bank guarantee, insurance, or deposit per license, typically in the amount of €500,000 as collateral for player liability and €100,000 as collateral for the payment of special online gambling duties.
      • Other Costs: Additional costs may include technical certification, system audits, and compliance assessments, which are borne by the applicant.

      Key Requirements for Obtaining and Maintaining a License

      • Corporate Structure: The applicant must be a legal entity with a registered office or branch in Portugal.
      • Technical Compliance: Gambling platforms and systems must be certified by approved testing laboratories to ensure fairness, security, and integrity.
      • Player Protection: Operators must implement robust responsible gambling measures, including self-exclusion tools, deposit limits, and age verification systems.
      • Anti-Money Laundering: Strict AML and KYC procedures must be in place, with regular reporting to the authorities.
      • Reporting and Auditing: Licensees are subject to ongoing monitoring, reporting obligations, and periodic audits by the SRIJ.
      • Financial Solvency: Operators must maintain adequate financial resources and provide periodic proof of solvency.
      • System Security: IT systems must comply with stringent data protection and cybersecurity requirements.

      Summary Table: Key Features of Portugal’s Gambling Licensing System

      Aspect Details
      Types of Licenses Online casino, sports betting, horse race betting, bingo, other approved games (each requires separate license)
      Application Process Electronic submission to SRIJ with detailed documentation
      Eligibility Legal entity with registered office/branch in Portugal
      License Duration 3 years (initial), renewable for 5-year periods
      Application Fee Non-refundable, varies by license type
      Annual License Fee Payable per license, amount varies
      Financial Guarantee €500,000 per license (player liability), €100,000 (special duty)
      Key Requirements Technical certification, responsible gambling, AML/KYC, reporting, financial solvency
      Renewal Requires compliance review and updated documentation

      Gambling Tax

      Tax Rates for Gambling Operators in Portugal

      Type of Gambling Tax Basis Tax Rate
      Land-based Casino Games Gross Gambling Revenue (GGR) 2.5% to 35% (progressive, depending on GGR and location)
      Online Casino Games & Online Bingo Gross Gambling Revenue (GGR) Progressive rates; typically within 15% to 30% range
      Online Fixed-Odds Sports Betting Turnover (total stakes) 8%
      Online Fixed-Odds Horse Racing Turnover (total stakes) 8%
      Land-based Bingo Stamp Duty (on stakes) 25%
      State-run Games (e.g., Lotteries) Stamp Duty (on stakes and prizes) 4.5% on stakes; 20% on prizes exceeding €5,000

      Basis for Taxation

      • Land-based casinos and online casino games are taxed on Gross Gambling Revenue (GGR), which is the difference between the amount wagered and the amount paid out to players.
      • Online fixed-odds sports betting and horse racing are taxed on turnover, meaning the total amount of bets placed, including any commissions.
      • Bingo and state-run games are subject to stamp duty, applied to stakes and, in some cases, to prizes above a certain threshold.

      Tax Reporting and Payment Requirements

      • Licensed operators must submit regular tax returns to the Portuguese tax authorities, typically on a monthly basis.
      • Taxes are calculated based on the relevant period’s GGR or turnover, depending on the type of gambling operation.
      • Payment of taxes is generally due within a set period after the end of each reporting period, most commonly within 15 days of the following month.
      • Operators are required to maintain accurate records of all transactions, bets, payouts, and revenues to support their tax filings.

      Tax Incentives, Exemptions, and Special Provisions

      • No significant tax incentives or exemptions are provided for gambling operators under the current Portuguese regime.
      • For players, winnings from licensed online gambling are generally exempt from personal income tax, regardless of the amount won.
      • Special provisions apply to state-run games, where a higher stamp duty (20%) is levied on prizes exceeding €5,000, in addition to the standard rate on stakes.

      Prohibited Individuals

      Age Restrictions and Identification Requirements

      • The minimum legal age for participating in gambling activities in Portugal is 18 years old. This applies to both land-based and online gambling.
      • For entry into casinos and other gambling venues, players must present valid identification to verify their age and identity. Operators are required to perform age verification checks to prevent minors from accessing gambling services.
      • Additional identification requirements may be enforced for certain types of games or higher-value transactions, in line with anti-money laundering and responsible gambling protocols.

      Prohibited Activities and Game Restrictions

      • Unlicensed gambling operations, both online and land-based, are strictly prohibited. The authorities actively block access to unauthorized gambling websites and conduct enforcement actions against illegal operators.
      • Live casino games are not permitted to be operated online in Portugal as of the most recent updates. This restriction limits the types of online games that can be offered by licensed operators.
      • Operators are only allowed to offer games that have been specifically approved by the regulator. There are restrictions on introducing new game mechanics or variants without prior authorization, which can limit the diversity of available products.
      • There are exclusive geographic zones for land-based casinos, and unauthorized gambling outside these designated areas is not allowed.

      Advertising and Marketing Limitations

      • All gambling advertising must comply with strict standards to promote responsible gambling and avoid targeting vulnerable groups, including minors.
      • Advertising cannot be misleading, must not suggest that gambling is a way to solve financial problems, and should not encourage excessive or irresponsible play.
      • There are restrictions on the timing and placement of gambling advertisements, particularly to prevent exposure to minors. For example, advertising may be limited during certain hours or in media where a significant proportion of the audience is underage.
      • Operators must include responsible gambling messages and information about self-exclusion and support services in all marketing communications.

      Responsible Gambling Requirements and Player Protection Measures

      • Operators are required to provide mechanisms for players to set deposit, wager, and loss limits, enabling individuals to control their gambling activity.
      • Self-exclusion programs are mandatory. Players must have the ability to exclude themselves from gambling platforms or venues for specified periods or permanently.
      • Operators must offer tools for players to take breaks or implement “cooling-off” periods to encourage reflection and prevent impulsive gambling.
      • Information about responsible gambling, risks of addiction, and available support services must be clearly accessible to all players.
      • Strict anti-money laundering and customer due diligence measures are enforced to protect players and ensure the integrity of gambling operations.

      Geographic and Location Restrictions

      • Land-based casinos can only operate within designated gaming zones established by the government. Gambling outside these zones is not permitted.
      • Online gambling operators must be licensed in Portugal and are required to restrict access to their services from jurisdictions where online gambling is not permitted.
      • Enforcement actions include blocking access to illegal gambling websites and targeting unauthorized physical gambling establishments.
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        Timeline

        Year/Date Event
        1927 First legal casino established in Portugal, marking the beginning of regulated land-based gambling.
        1989 Comprehensive Gambling Law adopted, providing a legal framework for land-based casinos and other games of chance.
        2003 Law No. 16/2003 passed, regulating land-based sports betting and lotteries, further expanding the legal gambling market.
        2015 Regulation of Online Gambling and Betting (RJO) enacted, legalizing and regulating online gambling and betting for the first time in Portugal.
        2016 First online gambling licenses issued under the new regulatory framework, officially launching the regulated online gambling market.
        2023 Approval of a new category of online gambling—Crash games—expanding the range of legal online gaming products.
        2025 (expected) Planned review of the RJO to mark its 10th anniversary, with anticipated updates to adapt to market developments and stakeholder feedback.

        Requirements

        Software Certification and Technical Standards

        • All gambling software used by operators must be certified by independent, accredited testing laboratories to ensure fairness, randomness, and compliance with Portuguese technical standards.
        • Game systems must comply with detailed technical specifications set by the Serviço de Regulação e Inspeção de Jogos (SRIJ), including requirements for random number generators (RNGs), payout percentages, and system security.
        • Operators must implement robust technical controls to prevent unauthorized access, manipulation, or tampering with gaming systems and data.
        • Any updates or changes to the gaming software require prior notification and, in some cases, re-certification by the regulator.

        Data Protection, Privacy Measures, and Server Location

        • Operators are required to comply with the General Data Protection Regulation (GDPR) and Portuguese data protection laws, ensuring the secure handling, storage, and processing of personal and financial data.
        • All player data must be encrypted both in transit and at rest, using industry-standard cryptographic protocols.
        • Operational servers hosting gambling platforms and player data must be located within the European Economic Area (EEA) or in jurisdictions providing equivalent levels of data protection as recognized by the European Union.
        • Operators must implement strict access controls, audit trails, and regular security assessments to safeguard sensitive information.

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

        • Operators must establish and maintain comprehensive AML programs in line with EU directives and Portuguese law, including risk assessment, internal controls, and employee training.
        • Mandatory KYC procedures require the verification of player identity, age, and residence before allowing gambling activity or processing withdrawals.
        • Operators must monitor transactions for suspicious activity, report any suspicious transactions to the relevant authorities, and maintain detailed records of all AML-related actions.
        • Enhanced due diligence is required for high-risk players or transactions, including source of funds verification when appropriate.

        Financial Reporting, Auditing Standards, and Record-Keeping

        • Operators are required to maintain accurate, up-to-date records of all gaming transactions, player accounts, and financial flows, accessible for regulatory review.
        • Regular submission of financial and operational reports to the SRIJ, including detailed breakdowns of wagers, payouts, player balances, and tax calculations, is mandatory.
        • Annual independent audits of financial statements and gaming system operations must be conducted by certified auditors and submitted to the regulator.
        • Records must be retained for a minimum period as specified by Portuguese law, typically five years, and must be made available to authorities upon request.

        Technical Implementation Requirements for Responsible Gambling Tools

        • Operators must integrate technical tools that enable players to set deposit, loss, and session limits directly within the gaming platform.
        • Self-exclusion mechanisms must be implemented, allowing players to voluntarily exclude themselves from gambling activities for specified periods or indefinitely.
        • Systems must provide real-time notifications and warnings to players regarding their gambling behavior, including time and money spent.
        • Operators are required to display responsible gambling information and links to support services prominently within the user interface.
        • All responsible gambling tools must be technically robust, tamper-proof, and subject to regular testing and verification by the regulator.

        Sources

        Primary Regulatory Authorities

        Legislation Resources

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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