Spain’s Evolving Landscape of Online Gaming Regulation
Spain’s gaming sector, encompassing both physical and online platforms, has transformed into a highly regulated and closely monitored industry. The legality of online gaming is governed by Spain’s gaming law, a dynamic regulatory framework designed to safeguard players, ensure transparency, and prevent illicit activities. As we move further into 2025, this regulation is being strengthened and adapted to address the evolving challenges of the digital environment.
A Brief History: The Path to Regulation
The proliferation of online gaming platforms in the early 21st century highlighted the need for nationwide regulation. Previously, regional regulations created legal uncertainty. Consequently, on May 28, 2011, Law 13/2011, the Gaming Regulation Act, was enacted. This law established a solid legal framework for all gaming activities at the national level, both online and in physical locations. Its primary objectives are:
- Guaranteeing player protection, with a focus on preventing gambling addiction and protecting minors.
- Ensuring the integrity and transparency of games, combating fraud and money laundering.
- Promoting a competitive and responsible market, allowing companies to operate with the necessary safeguards.
The Directorate General for Gaming Regulation: A Regulatory Pillar
The Gaming Law established the Directorate General for Gaming Regulation (DGOJ), an agency attached to the Ministry of Consumer Affairs and the primary guarantor of legality in the sector. The DGOJ has intensified its fight against illegal operators, blocking and/or sanctioning numerous unauthorized sites. In the second half of 2024 alone, fines exceeding 77 million euros were imposed on illegal online gaming operators, a clear demonstration of its proactive stance. Its functions include:
- Granting and renewing licenses to gaming operators.
- Supervising and controlling authorized gaming activities.
- Inspecting and, where appropriate, sanctioning those who violate current regulations.
- Promoting responsible gaming and preventing addictive behaviors, promoting initiatives for safe gaming.
- Managing the General Registry of Interdictions of Access to Gaming (RGIAJ), where individuals can voluntarily register to self-exclude from gaming.
The DGOJ ensures that Spain’s gaming law is rigorously enforced, providing a safe and fair environment for players.
Requirements for Operation: The Barrier to Entry for Legality
Operating in the online gaming market in Spain requires compliance with strict requirements imposed by the DGOJ. These seek to guarantee the solvency, transparency, and security of operators. To obtain a license, companies must meet legal, technical, and economic requirements, including the need for a .es domain for all their operations directed at the Spanish territory. The implementation of robust technical systems that ensure the randomness and fairness of games is also required, and these systems must be audited by independent entities.
In 2025, the DGOJ has placed a strong emphasis on combating identity theft in online gaming, meeting with experts and operators to strengthen protocols. The PACS (Protocol of Action for Supplanted Taxpayers) protocol has proven to be a vital tool, registering nearly 8,000 reports of identity theft in 2024. Furthermore, it is being promoted as a legal requirement that payments on online gaming platforms be made exclusively with nominative credit cards (in the player’s name). This measure is crucial to prevent the use of third-party cards, which facilitates impersonation and the circumvention of self-exclusion controls. Operators must also implement measures against money laundering and the financing of terrorism.
Gaming Advertising: A Regulatory Battleground
One of the most regulated and modified aspects of Spain’s gaming law is advertising. The Spanish government has significantly tightened restrictions, aware of the impact that gaming promotion can have on the most vulnerable groups. Royal Decree 958/2020, of November 3, on commercial communications of gaming activities, severely limited advertising on audiovisual communication services (television and radio) to the time slot from 01:00 to 05:00 hours.
Although some of the measures of the Royal Decree, such as the prohibition of the appearance of public figures in advertising and restrictions on welcome bonuses, were partially annulled by the Supreme Court, the Government is actively working in 2025 to elevate those articles to the rank of law through new legislative initiatives. This reflects a continuous commitment to much more responsible and restrictive advertising. The focus also remains on regulating advertising on social networks and interaction with digital influencers, due to their growing impact among audiences, especially younger ones.
Responsible Gaming: A Non-Negotiable Priority
Spain’s gaming law focuses on player protection and the promotion of responsible gaming. This translates into various tools and measures to help users maintain control over their gaming activity:
- Deposit limits: Players can set daily, weekly, or monthly limits on the amount of money they can deposit.
- Self-exclusion: The possibility of voluntarily and temporarily (or permanently) self-excluding from all licensed gaming platforms through the RGIAJ is offered.
- Clear and visible information: Operators are required to provide detailed information about the risks associated with gaming and to offer links to support organizations.
- Identity verification: To prevent underage gaming and guarantee the identity of users, rigorous verification of registration data is required, which is complemented by the DGOJ’s efforts against identity theft.
These measures seek to ensure that gaming is a leisure and entertainment activity, and does not generate problems. The DGOJ, in collaboration with various associations, actively works on awareness campaigns and on the early detection of risky gaming patterns. In 2025, a new call for grants has been opened for research on disorders derived from gaming activity, reinforcing the commitment in this area.
The Economic and Social Impact of Online Gaming in Spain
The online gaming sector in Spain is an industry of growing economic relevance. According to the “Annual Report on Online Gaming for the year 2024” published by the DGOJ in March 2025, the Gross Gaming Revenue (GGR) was 1,454.59 million euros in 2024, which represents a growth of 17.61% compared to the previous year. The monthly average of active accounts reached 1,433,715, an increase of 23.48%.
This growth is accompanied by challenges. The ease of access and immediacy of online betting have generated concerns about the increase in impulsive gaming and the risk of addiction. Therefore, Spain’s gaming law and its modifications constantly seek a balance between the profitability of the sector and the protection of consumers. The taxation of online gaming winnings, which must be declared in the IRPF, is another of the relevant economic aspects for players, with tranches that vary according to the amount of the winnings.
The future of online gaming in Spain is envisioned as a path of technological innovation, always under the prism of a regulation that seeks to be increasingly strict in the protection of the player. The DGOJ continues to monitor the market and adapt the regulations to the new realities.
Challenges and Future of Regulation in 2025
Despite the solidity of Spain’s gaming law, the sector faces continuous challenges. Technological evolution, the emergence of new gaming modalities, and the need to adapt to international trends require constant vigilance and responsiveness on the part of the DGOJ. Current debates focus on improving the detection of risk patterns and the implementation of early warning systems for players with potential problems. The DGOJ has also expanded its digital presence with a new website and profiles on social networks (Facebook, Instagram, Bluesky, YouTube) in early 2025, seeking greater transparency and communication with the public.
Coordination with regional authorities remains a key point, since while online gaming is a state competence, physical gaming largely falls on the regional communities. The harmonization of criteria and collaboration are essential for effective regulation. In addition, in February 2025, the DGOJ organized the first conference on the prevention of money laundering in the online gaming sector, bringing together representatives of the Public Treasury and Sepblac with authorized operators to strengthen measures against illicit activities. The future could also bring a greater focus on the sustainability of the sector, seeking that the industry contributes positively to society.
The legality of online gaming in Spain is a complex and dynamic issue. Spain’s gaming law has laid the foundations for a regulated and safe market, with a continuous commitment in 2025 for comprehensive player protection and a fully responsible industry. The constant adaptation of the regulations and the commitment of all parties will be fundamental to ensure that gaming remains a form of responsible entertainment.
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