Is Gambling Legal in Russia? Guide to Zones & Restrictions in 2025

Key Information

Last Update 2025

Regulatory Authority Ministry of Finance of the Russian Federation

License Cost Varies

Regulation by Activity Type

Casinos Regulated

Online Casinos Prohibited

Betting Regulated

Online Betting Regulated

Lotteries Regulated

Poker Prohibited

Highlights

Casino gambling is only legal in five designated zones; all other regions are strictly prohibited from hosting casinos.
Online casinos are banned; only licensed land-based betting and lotteries are permitted, with online sports betting under state control.
Federal Law No. 244-FZ is the core legislative framework, establishing strict controls and limiting gambling to special zones.
Licenses for gambling operations are issued by the Ministry of Finance and require significant capital and compliance with strict criteria.
Bookmakers and totalisators can operate nationwide with a license, but casino operations are restricted to gambling zones only.
Advertising illegal online casinos is subject to heavy fines, with new proposals aiming to increase penalties up to 7 million rubles.
Authorities are intensifying enforcement against illegal online gambling, including blocking websites, apps, and crypto-based payments.

Legislation

Primary Legislation

The core legal framework governing gambling in Russia is established by federal laws and associated regulatory acts. The principal piece of legislation is Federal Law No. 244-FZ "On State Regulation of Activities for the Organization and Conduct of Gambling and on Amendments to Certain Legislative Acts of the Russian Federation." This law, enacted in 2006 and effective from 2009, strictly limits gambling activities to designated "gambling zones" and prohibits most forms of gambling elsewhere in the country, including online gambling. The law defines the types of permitted gambling, sets out requirements for the organization and operation of gambling establishments, and establishes the legal basis for state oversight and control of the gambling sector.

Federal Law No. 244-FZ "On State Regulation of Activities for the Organization and Conduct of Gambling and on Amendments to Certain Legislative Acts of the Russian Federation" – the foundational law regulating all gambling activities, restricting legal gambling to specific zones and setting operational requirements.
Associated legislative acts and amendments that clarify and update definitions, enforcement mechanisms, and the scope of permissible activities under the main law.
Additional regulations issued by the government to implement and enforce the provisions of Federal Law No. 244-FZ, including technical standards and operational rules for gambling operators.

Regulatory Authority

Oversight and enforcement of gambling legislation in Russia is carried out by several state bodies, with the principal authority being the federal government. Currently, the State Tax Service is responsible for the regulation and supervision of casinos and online gambling, while bookmakers and totalisators have operated with a degree of self-regulation. However, legislative proposals are under consideration to establish a single national gambling regulator with comprehensive authority over all gambling activities in Russia. This new regulator, if approved, would be tasked with monitoring, detecting, and preventing illegal gambling operations, as well as developing proposals to improve national gaming legislation.

State Tax Service – currently oversees casinos and online gambling, ensuring compliance with federal laws.
Roskomnadzor – the federal executive body responsible for supervising communications, information technology, and mass media, including the blocking of illegal online gambling websites.
Other agencies, such as Rosfinmonitoring (the Federal Financial Monitoring Service), are involved in anti-money laundering controls related to gambling transactions.
Proposed unified gambling regulator – a new authority under consideration by the State Duma, intended to centralize regulatory oversight and enforcement across all gambling sectors.

License Types

Types of Gambling Licenses in Russia

Casino and Slot Machine Halls: Licenses for operating land-based casinos and slot machine halls are only available within designated gambling zones. These zones currently include Altai (Siberian Coin), Kaliningrad (Yantarnaya), Sochi (Krasnaya Polyana), Primorye (near Vladivostok), and Crimea.
Bookmaker Offices and Totalizators (Betting Shops): Licenses are available for both land-based and online betting operations. Bookmakers and totalizators can operate throughout Russia, not just in gambling zones, provided they obtain the appropriate license.
Lotteries: The state holds a monopoly on lotteries; private lottery licenses are not issued.

Application Process and Duration

Authority: The licensing process is overseen by the Federal Tax Service and, for some activities, regional authorities in the designated gambling zones. A unified regulator is being established to centralize oversight, but as of now, the Federal Tax Service remains the primary authority.
Procedure:
- Applicants must be registered legal entities in Russia.
- Submission of a comprehensive application package, including proof of financial standing, business plan, and documentation of compliance with technical and security standards.
- For bookmakers and totalizators, membership in a self-regulatory organization (SRO) is required, though this system is being phased out in favor of direct oversight by the unified regulator.
- Casinos and slot halls must demonstrate compliance with strict spatial and equipment requirements (e.g., minimum floor area, number of gaming tables or machines).
Duration: Licenses are typically issued for a period of five years, with the possibility of renewal upon compliance with all regulatory requirements.
Renewal: Renewal applications must be submitted in advance of license expiry and are subject to a review of continued compliance with all legal, financial, and operational obligations.

Financial and Licensing Costs

Application Fees: Significant non-refundable fees are required upon submission of a license application. The exact amount varies depending on the type of license and region.
Minimum Capital Requirements:
- Casinos and slot machine halls: Minimum net assets of 600 million RUB (approximately $6.5 million USD).
- Bookmaker offices and totalizators: Minimum net assets of 100 million RUB (approximately $1.1 million USD).
Annual Fees: Licensed operators must pay annual regulatory fees, the amounts of which are set by federal and regional authorities.
Other Financial Requirements: Operators must maintain sufficient funds to cover potential payouts and demonstrate ongoing financial stability.

Key Requirements for Obtaining and Maintaining a License

Corporate Structure: Only Russian-registered legal entities may apply. Foreign ownership is permitted, but the company must be incorporated in Russia.
Physical Requirements (Casinos/Slot Halls):
- Minimum customer service area of 800 square meters for casinos.
- At least ten gaming tables for casinos; slot machine areas must have at least 50 machines and occupy at least 100 square meters.
- Slot machines must have a minimum payout rate of 90%.
Technical and Security Standards: All equipment must meet certified technical standards and be regularly inspected.
Compliance and Reporting: Operators are subject to ongoing compliance checks, must submit regular reports, and allow regulatory inspections at any time.
Responsible Gambling Measures: Operators must implement measures to prevent gambling addiction and protect minors, including clear signage and exclusion programs.
Payment Systems (Bookmakers): All online betting transactions must be processed through approved payment systems (TSUPIS), ensuring traceability and compliance.

Summary Table: License Types and Key Requirements

License Type	Where Allowed	Minimum Capital	Key Requirements	Duration
Casino/Slot Hall	Designated gambling zones	600 million RUB	800+ sqm area 10+ gaming tables 50+ slot machines (if applicable) Technical certification	5 years
Bookmaker/Totalizator	Nationwide (with license)	100 million RUB	SRO membership (transitioning to unified regulator) TSUPIS payment system Compliance with reporting and responsible gambling	5 years
Lottery	State monopoly	Not applicable	Operated by state entities only	Not applicable

Gambling Tax

Tax Rates for Gambling Operators in Russia

Russia imposes specific tax rates on gambling operators, which vary depending on the type of gambling activity. The main categories are casinos, slot machine halls, bookmakers, totalisators (pari-mutuel betting), and lotteries. The tax system is primarily based on fixed rates per gambling unit, rather than on gross gaming revenue (GGR) or turnover.

Type of Gambling Operation	Tax Basis	Tax Rate (per unit, per month)
Casino Gaming Table	Per table	125,000–250,000 RUB
Slot Machine	Per machine	7,500–15,000 RUB
Bookmaker Shop	Per betting shop	50,000–250,000 RUB
Bookmaker Processing Center	Per center	250,000–3,000,000 RUB
Totalisator Shop	Per shop	50,000–250,000 RUB
Totalisator Processing Center	Per center	250,000–3,000,000 RUB
Lottery	Varies (state monopoly)	Subject to separate rules

Basis for Taxation

The taxation of gambling operators in Russia is not based on GGR (Gross Gaming Revenue) or turnover. Instead, it is a fixed monthly tax per gambling unit (such as a gaming table, slot machine, or betting shop).
The exact amount within the specified ranges is set by regional authorities, but must fall within the federal minimum and maximum limits.

Tax Reporting and Payment Procedures

Gambling operators must register all gambling equipment and locations with the tax authorities.
Taxes are calculated monthly based on the number of registered gambling units.
Operators are required to submit monthly tax returns to the local tax office, detailing the number and type of taxable gambling units.
Payment of the gambling tax is due monthly, typically by the 20th day of the month following the reporting period.
Failure to report or pay taxes on time can result in penalties, fines, and possible revocation of the gambling license.

Tax Incentives, Exemptions, and Special Provisions

There are no significant tax incentives or exemptions specifically for gambling operators under the current Russian tax regime.
State lotteries are subject to a separate taxation regime, as they are operated under a state monopoly.
Regional authorities have some discretion to set the tax rate within the federal limits but cannot grant full exemptions for licensed gambling activities.
Investment tax deductions and other general business incentives may be available to operators, but these are not specific to the gambling sector.

Summary

Gambling taxes in Russia are fixed per unit (table, machine, shop, or processing center), not based on revenue or turnover.
Operators must report and pay taxes monthly, with strict requirements for registration and compliance.
There are no sector-specific tax incentives or exemptions for gambling operators, except for state-run lotteries, which follow a different regime.

Prohibited Individuals

Age Restrictions and Identification Requirements

The minimum legal age for all forms of gambling in Russia is 18 years old. This applies to casinos, betting, lotteries, and any other permitted gambling activities.
Operators are required to verify the age and identity of all players before allowing participation. This typically involves checking official identification documents to confirm that the player is at least 18 years old.
For online betting with licensed bookmakers, players must complete a registration and identification process, which includes providing personal information and verifying identity through payment processing systems affiliated with the operator.

Prohibited Activities and Game Restrictions

All forms of online casino gambling are strictly prohibited in Russia, except for licensed online sports betting and totalizator (pari-mutuel) betting.
Casino gambling and electronic gaming machines (EGMs) are banned throughout Russia except within designated gambling zones.
Private lotteries are not permitted; only state-run lotteries are allowed.
Unlicensed gambling activities, including underground casinos and unauthorized betting operations, are illegal and subject to enforcement actions.
Slot machines and casino table games are only allowed in approved venues within the designated gambling zones.

Advertising and Marketing Limitations

Advertising of illegal gambling, including unlicensed online casinos, is strictly forbidden.
There are explicit restrictions on gambling advertising: it must not target minors, exaggerate the chances of winning, downplay risks, or create the impression that winning is guaranteed.
Recent legislative proposals aim to introduce severe fines and confiscation of equipment for individuals and organizations found advertising illegal gambling, including through indirect means such as influencer streams, referral links, or social media promotions.

Responsible Gambling Requirements and Player Protection Measures

Operators are required to implement measures to prevent access by minors, including robust age and identity verification procedures.
There are requirements for operators to display responsible gambling messages and information about the risks associated with gambling.
Limits on individual bets and weekly transaction amounts are being introduced for online betting to enhance consumer protection.
Operators must provide information and resources for players seeking help with problem gambling, and there are ongoing initiatives to monitor and address gambling addiction, especially among vulnerable groups such as youth.
Attempts to access illegal gambling websites are actively blocked, particularly in educational institutions, to protect minors and students.

Geographic and Location Restrictions

Land-based casinos and slot machine halls are only permitted in five designated gambling zones: Altai (Siberian Coin), Kaliningrad (Yantarnaya), Primorye, Sochi, and Crimea.
Outside these zones, all casino and EGM operations are illegal and subject to closure and penalties.
Bookmaker offices and totalizators may operate outside the gambling zones but must be licensed and comply with strict regulatory requirements.
Online gambling (apart from licensed sports betting) is prohibited nationwide and enforcement measures are in place to block access to illegal gambling websites.

Timeline

Year/Date	Event
1928	First official ban on gambling activities enacted in the Soviet Union, prohibiting all forms of gambling.
1989	Legalization of gambling in the late Soviet era; first casinos begin to open in Moscow and other major cities.
1993	Post-Soviet Russia introduces regulations allowing gambling businesses to operate under license.
2006	Federal Law No. 244-FZ adopted, mandating the closure of all casinos and slot machine halls outside four designated gambling zones by July 1, 2009.
2007	Law on gambling zones comes into effect, specifying four regions (Altai, Kaliningrad, Primorye, and Azov City) where gambling is permitted; all other areas are prohibited.
2009	Nationwide ban on gambling outside the designated zones is enforced; all casinos and slot halls outside these zones are closed.
2014	Sochi and Crimea are added as new legal gambling zones, expanding the number of permitted regions.
2017	Amendments to gambling legislation strengthen state control and introduce new restrictions to protect citizens and public interests.
2021	Russian government proposes creating a unified gambling regulator to oversee all forms of gambling, including online activities.
2024–2025	Authorities intensify efforts to combat illegal online gambling, including proposals to block access to unlicensed sites and restrict cryptocurrency payments for gambling.

Requirements

Software Certification and Technical Standards

All gambling equipment and software used by operators in Russia's legal gambling zones must comply with strict technical standards established by regulatory authorities.
Gaming machines must meet a minimum payout percentage (typically not less than 90% for slot machines) and be certified by accredited testing laboratories to ensure fairness and reliability.
Operators are required to use certified random number generators (RNGs) and ensure that all gaming systems are tamper-proof and auditable.
Software updates and changes must be reported to and approved by the regulator before implementation.
Technical documentation, including source code and system architecture, must be made available for regulatory inspection upon request.

Data Protection, Privacy Measures, and Server Location

Operators must store all gambling-related data, including player information, financial transactions, and game logs, on servers physically located within the Russian Federation.
Data retention policies require operators to securely store records for a minimum period as defined by regulatory authorities, typically several years.
Strict privacy measures must be implemented to protect personal data, including encryption of sensitive information and secure access controls.
Operators are required to comply with Russian data protection laws, ensuring that any cross-border transfer of data is prohibited unless explicitly authorized by regulators.
Regular security audits and penetration testing are mandated to identify and mitigate vulnerabilities in IT infrastructure.

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

Operators must implement robust AML policies, including real-time monitoring of transactions for suspicious activity and mandatory reporting of large or unusual transactions to the relevant authorities.
KYC procedures require verification of customer identity before allowing participation in gambling activities. This includes collecting and validating official identification documents and checking against government watchlists.
Operators must prevent the use of cryptocurrencies or other anonymous payment methods unless full identity verification is completed and approved by the regulator.
All customer data collected as part of AML and KYC processes must be securely stored and made available for regulatory inspection.
Ongoing monitoring of customer activity is required to detect potential money laundering or terrorist financing risks, with immediate escalation protocols in place.

Financial Reporting, Auditing Standards, and Record-Keeping Requirements

Operators are obligated to maintain detailed and accurate records of all financial transactions, customer accounts, and gaming operations.
Regular financial reporting to the regulator is mandatory, including submission of audited financial statements prepared in accordance with Russian accounting standards.
Operators must conduct internal and external audits of their operations, with findings reported to the regulator.
Record-keeping systems must ensure the integrity, authenticity, and retrievability of all data for the required retention period.
Any discrepancies or irregularities discovered during audits must be reported to the authorities without delay.

Technical Implementation Requirements for Responsible Gambling Tools

Operators are required to integrate responsible gambling tools into their systems, including self-exclusion mechanisms, deposit and loss limits, and reality checks for players.
Systems must allow players to set personal limits on time and money spent, and these limits must be enforced automatically by the gaming software.
Information about responsible gambling resources and support services must be prominently displayed on all gaming platforms.
Operators must implement age verification systems to prevent access by minors, with technical controls to block underage participation.
All responsible gambling features must be auditable and their effectiveness subject to regular review by the regulator.

Sources

Primary Regulatory Authorities

Federal Tax Service of Russia (Федеральная налоговая служба) – Responsible for taxation and oversight of licensed gambling operators, including bookmakers and totalizators.
Federal Financial Monitoring Service (Rosfinmonitoring) – Monitors anti-money laundering compliance, including in the gambling sector.

Contact Information

Rosfinmonitoring: Phone: + 7 495 627-33-97 Address: Build.1, 39, Myasnitskaya str., Moscow, 107450, Russia