Is Gambling Legal in United Arab Emirates? Laws & Regulations Explained 2025

Key Information

Last Update 2025

Regulatory Authority General Commercial Gaming Regulatory Authority (GCGRA)

License Cost Varies

Regulation by Activity Type

Casinos Prohibited

Online Casinos Prohibited

Betting Prohibited

Online Betting Prohibited

Lotteries Prohibited

Poker Prohibited

Highlights

Gambling remains illegal under UAE federal law, but new regulatory frameworks are emerging.
The General Commercial Gaming Regulatory Authority (GCGRA) was established in 2023 to oversee all gambling activities.
GCGRA is responsible for licensing, supervision, enforcement, and regulation of commercial gaming nationwide.
Licenses are being issued for lotteries, internet gaming, sports wagering, and land-based casinos.
Strict penalties apply to unlicensed gambling, ensuring only regulated operators can legally offer services.
The licensing process includes anti-money laundering and counter-terrorism financing requirements.
The UAE aims to align its gaming regulations with global best practices, similar to Nevada and New Jersey models.

Legislation

Primary Legislation

Gambling in the United Arab Emirates is governed primarily by federal law, which historically has prohibited all forms of gambling based on Islamic principles. The key legal instrument is the UAE Penal Code, which explicitly bans gambling activities and prescribes significant penalties for violations. However, in a major recent development, the UAE has introduced a new regulatory framework for "commercial gaming" through the establishment of the General Commercial Gaming Regulatory Authority (GCGRA) in September 2023. This marks a significant shift, as the GCGRA is empowered to regulate, supervise, and enforce new regulations for various forms of commercial gaming, including lotteries, internet gaming, sports wagering, and land-based casinos. While the traditional prohibitions under the Penal Code remain in force, the new regulatory regime is creating a parallel legal structure specifically for licensed and regulated gambling activities. This dual framework is currently in transition, with the GCGRA beginning to issue licenses and oversee compliance for legal gambling operations.

Regulatory Authority

The principal regulatory body for gambling in the UAE is the General Commercial Gaming Regulatory Authority (GCGRA). Established as a federal authority, the GCGRA has comprehensive oversight over all aspects of commercial gaming and gambling within the country. Its core responsibilities include:

Regulating and supervising all forms of commercial gaming, including lotteries, internet gaming, sports wagering, and land-based gaming facilities
Granting, renewing, and revoking licenses for gaming operators and related entities
Enforcing compliance with gaming laws and regulations, including anti-money laundering and responsible gaming measures
Developing and maintaining a fair, transparent, and ethical gambling environment
Collaborating with international regulators to align UAE standards with global best practices

The GCGRA operates independently and has exclusive authority to oversee the legal gaming sector, ensuring that all participants adhere to the established legal and regulatory framework.

License Types

Overview of UAE Gambling Licensing System

The United Arab Emirates is currently in a transitional phase regarding gambling regulation. The General Commercial Gaming Regulatory Authority (GCGRA), established in September 2023, now serves as the federal authority overseeing all aspects of commercial gaming and gambling within the country. The GCGRA holds exclusive rights to regulate, license, supervise, and enforce gaming regulations throughout the UAE's seven emirates.

Types of Gambling Licenses Available

The GCGRA is currently processing and reviewing applications for several types of gaming licenses:

Lottery Licenses - Permits for operating lottery games and draws
Internet Gaming Licenses - Covering both computer and mobile-based online gambling platforms
Sports Wagering Licenses - For sports betting operations
Casino Licenses - For land-based gaming facilities offering games such as slots, roulette, blackjack, baccarat, and craps

The GCGRA has already granted its inaugural lottery license to The Game LLC, marking the first official gambling license in the UAE. There are plans for casino licenses to be issued in every Emirate, signaling a significant shift in the country's approach to gambling regulation.

Licensing Application Process

The GCGRA has implemented a licensing process similar to mature gambling jurisdictions like Nevada and New Jersey. The process includes:

Initial approval phase to determine applicant suitability
Comprehensive background checks for operators and key personnel
Detailed review of business plans and operational procedures
Assessment of compliance capabilities, particularly regarding Anti-Money Laundering (AML) and Combating the Financing of Terrorism (CFT) regulations

The licensing framework covers all participants in the gambling sector, from major operators and vendors to staff and key players, ensuring comprehensive regulatory oversight.

Eligibility Requirements

While specific eligibility criteria are still being fully defined as the regulatory framework develops, applicants for gambling licenses in the UAE must demonstrate:

Financial stability and sufficient capital resources
Clean criminal record and good character for key individuals
Technical capability to operate gaming systems securely
Robust compliance programs, particularly for AML and CFT
Commitment to responsible gambling practices

The GCGRA aims to ensure that all licensed operators maintain high standards of integrity and transparency in their operations.

Regulatory Compliance Requirements

License holders must adhere to strict regulatory requirements to maintain their licenses:

Implementation of comprehensive internal controls
Regular reporting to the GCGRA on operational metrics
Maintenance of secure and fair gaming systems
Ongoing compliance with AML and CFT regulations
Adherence to responsible gambling standards

The GCGRA is committed to developing a progressive regulatory framework that safeguards the market from unethical gambling practices while ensuring a fair and transparent environment for both operators and consumers.

Current Status of Licensing Implementation

It's important to note that while the GCGRA has been established and has begun issuing licenses, the regulatory framework is still in its early stages. The existing gambling prohibitions under the UAE Penal Code technically remain in effect, creating a legal situation that is expected to be resolved as the new regulatory system becomes fully implemented. The GCGRA is actively working to foster strong partnerships with international gambling regulators, suggesting that the UAE's licensing system may incorporate best practices from established gambling jurisdictions around the world.

Gambling Tax

Tax Rates for Gambling Operators in the United Arab Emirates

As of April 2025, the United Arab Emirates is in the process of establishing a regulatory and taxation framework for gambling operators under the oversight of the General Commercial Gaming Regulatory Authority (GCGRA). However, the official tax rates for gambling operators—including casinos, sports betting, lotteries, and internet gaming—have not yet been publicly announced or implemented. The regulatory regime is modeled after mature international markets, suggesting that tax structures may eventually be based on Gross Gaming Revenue (GGR) or turnover, but no formal rates or bases for taxation have been published.

Type of Gambling Operation	Tax Rate	Tax Base
Casino	Not yet announced	Expected: GGR or turnover
Sports Betting	Not yet announced	Expected: GGR or turnover
Lottery	Not yet announced	Expected: GGR or turnover
Internet Gaming	Not yet announced	Expected: GGR or turnover

Basis for Taxation

The regulatory framework is anticipated to use internationally recognized tax bases such as Gross Gaming Revenue (GGR) or turnover.
No official confirmation of the precise tax base has been made public as of April 2025.

Tax Reporting and Payment Requirements

Detailed tax reporting and payment procedures for gambling operators have not yet been published by the GCGRA.
Operators are expected to be subject to regular reporting and compliance requirements, in line with global best practices, once the full framework is operational.
Payment schedules, forms, and submission processes will be clarified upon the release of the final regulatory and tax guidelines.

Tax Incentives, Exemptions, and Special Provisions

There are currently no publicly disclosed tax incentives, exemptions, or special provisions for gambling operators in the UAE.
Future announcements may introduce such measures to encourage investment or regulate specific types of operations, but nothing has been formalized as of this date.

Prohibited Individuals

Age Restrictions and Identification Requirements

The minimum legal age for participating in any form of gambling in the United Arab Emirates is strictly set at 21 years.
Operators are required to implement robust identification and age verification procedures to ensure that no underage individuals gain access to gambling activities, both online and at physical venues.
Players must provide valid government-issued identification for age and identity verification before being permitted to gamble.

Prohibited Gambling Activities and Game Restrictions

All forms of gambling remain prohibited unless expressly licensed by the General Commercial Gaming Regulatory Authority (GCGRA).
Unlicensed gambling, including private games, informal betting, and participation in unauthorized online platforms, is strictly forbidden and subject to severe penalties.
Specific games and activities are only allowed if covered by a valid license. These may include lotteries, internet gaming, sports wagering, and certain casino games such as slots, roulette, blackjack, baccarat, and craps, but only at licensed venues or platforms.
Any gambling activity outside the scope of GCGRA-licensed operations remains illegal.

Advertising and Marketing Limitations

Advertising and promotion of gambling services are heavily restricted in the UAE.
Only licensed operators may advertise, and all marketing materials must comply with strict content guidelines to prevent targeting minors or vulnerable individuals.
Advertising must not depict gambling as a means to solve financial problems, promote excessive or irresponsible play, or mislead about the chances of winning.
Marketing communications must include clear information about age restrictions and responsible gambling resources.
Any form of advertising or promotion for unlicensed gambling services is strictly prohibited and subject to enforcement actions.

Responsible Gambling Requirements and Player Protection Measures

Licensed operators are required to implement comprehensive responsible gambling programs, including self-exclusion options and tools for players to set deposit, loss, and time limits.
Operators must provide clear information about the risks of gambling and offer access to support services for individuals experiencing gambling-related harm.
Staff at licensed venues must be trained to identify and assist individuals showing signs of problem gambling.
Operators are obligated to monitor player behavior for signs of excessive or harmful gambling and intervene when necessary.
Strict anti-money laundering and anti-fraud measures are mandatory to protect players and ensure the integrity of gambling operations.

Geographic and Location Restrictions

Gambling activities are only permitted at venues and through online platforms that have been specifically licensed by the GCGRA.
Physical gambling venues must be located in approved areas as designated by the relevant Emirate and federal authorities.
Participation in gambling activities outside these licensed venues or platforms is prohibited, regardless of the player’s location within the UAE.
Access to unlicensed online gambling sites is actively blocked, and participation in such activities is illegal.

Timeline

Year/Date	Event
1970s	Initial federal laws enacted prohibiting all forms of gambling in the UAE, reflecting Islamic principles and societal values.
1987	Federal Law No. 3 of 1987 (UAE Penal Code) formally criminalizes gambling activities across the country.
2006	Federal Law No. 7 of 2006 on Electronic Crimes further reinforces the prohibition by including online gambling as an offense.
2023 (September)	Establishment of the General Commercial Gaming Regulatory Authority (GCGRA), the UAE’s first federal regulatory body for commercial gaming and gambling.
2024 (October)	Publication of the first commercial gaming regulations and licensing materials, signaling the start of a new regulatory era for gambling in the UAE.
2025 (January)	GCGRA grants the inaugural lottery license to The Game LLC and begins reviewing applications for other types of gaming licenses, including casinos, sports wagering, and internet gaming.

Requirements

Software Certification and Technical Standards

All gaming software and systems must undergo independent certification to ensure fairness, randomness, and compliance with technical standards set by the General Commercial Gaming Regulatory Authority (GCGRA).
Certified testing laboratories approved by the GCGRA must validate the integrity, security, and proper functioning of gaming software before deployment.
Technical standards are expected to align with mature international jurisdictions, requiring robust encryption, secure communication protocols, and tamper-proof systems.
Gaming systems must support secure integration with regulatory monitoring tools for real-time data transmission and oversight.
Updates or changes to gaming software require re-certification and prior approval from the GCGRA.

Data Protection, Privacy Measures, and Server Location

Operators are required to implement comprehensive data protection policies in line with UAE data privacy laws and GCGRA directives.
Personal and financial data of players must be encrypted both in transit and at rest, using industry-standard cryptographic methods.
Access to sensitive data must be restricted to authorized personnel, with detailed audit trails maintained for all data access and changes.
Gaming servers and data centers must be physically located within the UAE or in jurisdictions approved by the GCGRA, ensuring regulatory access and data sovereignty.
Operators must establish robust disaster recovery and business continuity plans to safeguard player data and maintain service availability.

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

Operators must implement stringent AML programs, including real-time transaction monitoring, suspicious activity reporting, and ongoing risk assessments.
Comprehensive KYC procedures are mandatory, requiring verification of player identity, age, and source of funds prior to account activation.
Operators must screen all customers against international sanctions and watch lists, and conduct enhanced due diligence for high-risk individuals.
All AML and KYC processes must be documented, regularly reviewed, and subject to independent audit by the GCGRA or its appointed agents.
Operators are required to provide secure digital channels for the collection, storage, and verification of customer documents and information.

Financial Reporting, Auditing Standards, and Record-Keeping

Operators must maintain accurate, up-to-date financial records in accordance with international accounting standards and GCGRA requirements.
Regular submission of financial statements, gaming revenue reports, and transaction logs to the GCGRA is mandatory.
All financial data, including player account balances, deposits, withdrawals, and bonus transactions, must be securely logged and retained for a minimum period specified by the regulator.
Operators are subject to periodic independent audits of their financial systems and controls, as well as ad hoc inspections by the GCGRA.
Any discrepancies or irregularities identified during audits must be reported to the GCGRA immediately, along with remedial action plans.

Responsible Gambling Tools and Technical Implementation

Operators must integrate responsible gambling tools into all gaming platforms, including self-exclusion, deposit limits, loss limits, and session time reminders.
Technical systems must allow players to set and modify personal limits, with changes subject to mandatory cooling-off periods to prevent impulsive decisions.
Automated monitoring tools must identify and flag at-risk behavior, triggering interventions such as notifications, mandatory breaks, or account reviews.
Operators are required to display responsible gambling information and support resources prominently within all digital and physical gaming environments.
All responsible gambling features must be auditable, with detailed logs maintained for regulatory review and compliance verification.

Sources

Primary Regulatory Authorities

General Commercial Gaming Regulatory Authority (GCGRA) - Official federal authority overseeing all aspects of commercial gaming and gambling in the UAE

Contact Information

Email: info@gcgra.ae
General Commercial Gaming Regulatory Authority (GCGRA), United Arab Emirates