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28Oct

DCMS Consultation on Category D gaming machines and licensing for bingo premises

28th October 2025 Ting Fung Harris Hagan, Responsible Gambling, Uncategorised 3

The Department for Culture, Media and Sport opened its consultation on Category D gaming machines and licensing for bingo premises on 15 October 2025.

Consultation proposals

The aim of the consultation is to ensure that the regulatory framework is fit for purpose, with the proposals addressing:

  • Stakes and prizes for Category D machines

For non-money prize machines, Government is proposing to split the “non-money prize machine” category into two; one for “non-money prize, slot style” machines, which maintain the current 30p stake limit and a £8 non-money prize limit, and one for “non-money prize, non-slot style” machines with a stake limit of up to 50p and non-money prize limits of up to £20. Other proposed changes include creation of a new pusher subcategory of machines, an increased non-money prize limit from £50 to £75 for crane-grabs and an increased stake limit from 20p to 30p for coin pushers.

  • Age limit for ‘cash out’ slot style machines

The consultation includes the proposal to make it an offence to invite, cause or permit anyone under 18 to use ‘cash out’ slot-style Category D machines, as set out in the previous government’s response to its consultation on measures relating to the land-based sector.

In respect of the voluntary agreement implemented by Bacta members in 2021 to ban under 18s using adult-only gaming machines, Government proposes to move this agreement into legislation to cover the minority of family entertainment centres not already complying with Bacta’s age restriction agreement.

  • Bingo licensing

The key proposal relates to the establishment of a ‘bingo area’ in all licensed bingo premises to help create a clearer distinction between adult gaming centres and bingo premises, and to ensure that land-based gambling premises are appropriately licensed. The consultation proposes three options for the amount of floor space in licensed bingo premises that should be designated as a continuous bingo area – either a 30, 40 or 50 percent minimum (it is Government’s view that requiring a proportion of floor space greater than 50 percent of the venue could be disproportionately burdensome for some small bingo venues.).

Government is also seeking views on rules that could apply to a ‘bingo area’, including prohibiting cabinet and in-fill style gaming machines in a ‘bingo area’, the type of content that can be included on electronic bino terminals in the ‘bingo area’, and requiring a minimum number of positions for bingo in the ‘bingo area’.

Participants may respond online or email their responses to the consultation questions to [email protected]. The consultation closes at 11:59pm on 9 January 2026.

If you have any questions, please do not hesitate to contact us.

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24Oct

Reminder: Updates to the RTS and transparency of protection of customer funds come into effect on 31 October 2025

24th October 2025 Ruby Duncalf Uncategorised 4

Licensees are reminded that updates to the remote gambling and software technical standards (“RTS”), along with new requirements regarding the transparency of protection of customer funds, come into effect on 31 October 2025. We previously reported on the upcoming changes here, and this post serves as a timely reminder to ensure all licensees are fully prepared for the upcoming changes. Licensees should ensure they are compliant with the requirements before 31 October 2025.

Summary of the RTS updates

Following the Gambling Commission’s response to its Autumn 2023 consultation, amendments to RTS 12 – Financial limits are scheduled to come into effect at the end of the month. These changes will apply across all gambling products, with the exception of subscription lotteries. For ease of reference, we have set out below the RTS 12 in effect from 31 October 2025. Licensees should familiarise themselves with the updated RTS to ensure they are compliant.

RTS requirement 12A

The gambling system must provide easily accessible facilities for customers to set their own financial limits at any time from the point of registration. 

Customers must be prompted to set a limit as part of the registration process or at the point at which the customer makes the first deposit or payment. The limit must be implemented as soon as practicable after the customer’s request. The customer must be informed when the limit will come into force. 

RTS implementation guidance 12A:

  1. Limits could be in the form of:
    1. deposit limits: where the amount a customer deposits into their account is limited over a particular duration.
    2. spend limits: where the amount a customer spends on gambling (or specific gambling products) is restricted for a given period – this type of limit may be appropriate where the customer does not hold a deposit account with the operator.
    3. loss limits: where the amount lost (that is, winnings subtracted from the amount spent) is restricted (for instance when a customer makes a £10 bet and wins £8, the loss is £2).
  2. The period/duration of the limits on offer should include:
    1. 24 hours;
    2. 7 days; and
    3. one month
  3. where a customer sets simultaneous time frames, for example a daily deposit limit and a weekly limit, the lowest limit should always apply. Therefore, if a daily deposit limit of £10 and a weekly limit of £100 are both set then the maximum the system should allow to be deposited is £10 per day and £70 per week.

RTS requirement 12B

Customers must be presented with a ‘free text’ box to set a limit, or the equivalent in the case of telephone gambling. 

As a minimum, limits must be applied at the account level. 

RTS implementation guidance 12B:

  1. In addition to account-level limits, limits could be implemented across individual products or channels. Where gambling licensees offer the facility to set limits for individual products or channels it should be made clear to customers using the facility whether those limits apply at the account or product/channel level. For example, where a limit has been set for a specific game, a customer should not be misled into assuming that the limit automatically applies to other products.
  2. Where a customer sets simultaneous time frames, gambling licensees should provide clear information on how the interaction between those limits works.
  3. Operators could provide links to tools or resources to inform budgeting and aid customers in determining appropriate limits for their personal circumstances.
  4. In order to mitigate against user error, the gambling system could permit specific monetary increments for limits, such as whole pounds.

RTS requirement 12C

Financial limit facilities must be provided via a direct link on the homepage and be clearly visible and accessible. 

Financial limit facilities must be clearly visible and accessible on deposit pages/screens or via a direct link on these pages or screens. 

The gambling system must minimise the number of clicks or pages customers make in order to access financial limit facilities.

RTS implementation guidance 12C: Links to limit-setting facilities from communications such as emails or notifications should link directly to the facilities and not via a home page or other intermediate page(s), unless required by account log in security settings.

RTS requirement 12D

Customer-led limits must only be increased at the customer’s request, only after a cooling-off period of at least 24 hours has elapsed and only once the customer has taken positive action at the end of the cooling off period to confirm their request. 

Unless systems/technical failures prevent it, customer-led reductions to limits must be implemented immediately.  

The gambling system must provide a prompt to customers to review their own account and transaction information, as is currently made available under RTS 1 – Customer account information. This must be provided at a minimum of six-month intervals for accounts with activity within a rolling 12-month period. Customers must be provided with facilities to set more frequent reminders to receive this statement and review their limits. 

RTS implementation guidance 12D:

  1. In the event of systems or technical failure not facilitating an automated and/or immediate reduction in limits, the customer should be informed when the limit reduction will take effect.
  2. Operators should monitor engagement with and responses to alerts, in order to inform good design and best practice.

RTS requirement 12E

Financial limit-setting facilities must present setting a limit as the default choice. The gambling system must require an action by the customer in order to decline setting a limit. 

The gambling system must receive confirmation that the customer does not wish to set a limit before moving on to deposit/gamble. 

The gambling system must prompt existing customers without limits set to review this position as a minimum on an annual basis.

RTS implementation guidance 12E:

  1. Presentation of financial limits as the default option could take the form of pre-selected fields such as tick boxes, or through visual distinction.
  2. Action to decline setting a limit and receiving confirmation could take the form of a tick box, dismissing a message or other action by the customer.
  3. Customers who choose to opt out of setting a limit could be provided with information or links to tools and resources such as budgeting tools and information about safer gambling.

Please note that on 7 October 2025 the Gambling Commission published its response to its supplementary consultation on the definitions of different types of financial limits, which will result in further changes to RTS 12 which will take effect on 30 June 2026.

Summary of update to transparency of customer funds

On 31 October 2025, licence condition 4.2.1 shall be amended with a paragraph added at licence condition 4.2.1(3). Subsequent paragraphs will be renumbered accordingly. The amendment shall apply to all operating licences, with the exception of gaming machine technical standards, gambling software, host, ancillary remote bingo and ancillary remote casino licences.

Under the updated licence condition, licensees who have selected a ‘not protected’ rating (i.e. in the case of a gambling company becoming insolvent, any money in a customer’s account would be classed as part of the company’s assets), will be required to remind customers every six months that their funds are not protected in the event of insolvency. The reminder must refer to the value of funds held for the customer. The licensee must require the customer to acknowledge receipt of the information and must not permit the customer to utilise the funds for gambling until they have done so.

Next steps

Licensees are strongly encouraged to review the revised RTS and implementation guidance in full, and updated licence condition 4.2.1, to ensure all necessary changes are made ahead of the 31 October 2025 implementation date.

Please get in touch with us if you have any questions about the upcoming changes.

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17Sep

Failure to prevent fraud offence in force from 1 September 2025

17th September 2025 Ting Fung Uncategorised 60

The new corporate criminal offence of ‘failure to prevent fraud’, which may apply to certain Gambling Commission licensees, came into to force on 1 September 2025 under the Economic Crime and Corporate Transparency Act 2023 (“ECCTA”).

The offence applies to “large” organisations only (defined in section 201 of ECCTA, and is based on turnover, balance sheet total and/or number of employees) and applies across the UK. Nevertheless, guidance published by the Home Office (Economic Crime and Corporate Transparency Act 2023: Guidance to organisations on the offence of failure to prevent fraud) (“Guidance”) states:

Although the offence of failure to prevent fraud applies only to large organisations, the principles outlined in this guidance represent good practice and may be helpful for smaller organisations.

Relevant licensees can find further information in the Guidance to assist them in taking appropriate action to prevent fraud, as well as in the Home Office’s collection on ECCTA.

It is a licensing objective under the Gambling Act 2005 to prevent gambling from being a source of crime or disorder, being associated with crime or disorder or being used to support crime, and the Gambling Commission expects all licensees to have effective measures in place to do so.

If you have any queries about the above, please do not hesitate to get in touch.

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05Aug

Gambling Commission Annual Report and Accounts 2024-2025

5th August 2025 Tiffany Babayemi Uncategorised 82

On 29 July 2025, the Gambling Commission published its Annual report and accounts 2024 – 2025 (the “Annual Report”) for the period 1 April 2024 to 31 March 2025 (the “Period”), which the Gambling Commission describes as a “busy and productive year…in its work to make gambling in Great Britain safer, fairer and crime-free”.

Key focuses of the Gambling Commission during the Period include (a) the publication of its new three-year Corporate Strategy, (b) the implementation of measures flowing from the Gambling Act Review (the “Review”), and (c) the National Lottery. The Gambling Commission also highlights other areas in which it considers to have made progress, including tackling illegal gambling, its collection and use of data, and improving its operational and financial performance.

The Annual Report contains a performance report in which the Gambling Commission provides a detailed overview of its delivery during the Period against the five strategic objectives from its Corporate Strategy 2024 to 2027. Key highlights from the performance report in respect of each strategic objective are set out below:

  1. Using data and analytics to make gambling regulation more effective
  • The Gambling Commission progressed in closing evidence gaps in priority areas across all licensing objectives by publishing its Evidence Gaps and Priorities programme. The Gambling Commission has also been exploring drivers of consumers’ trust in gambling which can be tracked over time through the Gambling Survey for Great Britain (“GSGB”).
  • Regulatory return requirements were amended following consultation by streamlining the number of questions asked and harmonising reporting periods to be on a quarterly, rather than annual, basis. The first annual report from the new GSGB was published.
  • The Gambling Commission launched a pilot scheme by collaborating with a small group of volunteering operators to develop the Gambling Commission’s approach to obtaining a regular feed of core data that will give up-to-date insight into how people’s gambling is changing.
  1. Enhancing core operational functions
  • In 2024, the Gambling Commission’s licensing team piloted a revised relationship management approach where licensees were supported by a dedicated team via phone and email to resolve queries, ranging from advice on filling out the new regulatory return forms to technical queries relating to the application of requirements. It also established an Operator Engagement Forum.
  • The Gambling Commission took steps to increase its efforts in tackling and disrupting illegal gambling activity, issuing 516 cease and desist requests to illegal operators (an increase from 384 during 2023-2024), and a further 352 to advertisers and/or affiliates of unlicensed operators. The Gambling Commission’s response to the December 2023 consultation on financial penalties was published and made significant changes to its Statement of Principles for Determining Financial Penalties.
  • During 2024 -2025, the Gambling Commission improved the transparency of industry compliance by reporting on the findings of its compliance work within its suite of impact metrics, a set of headline figures intended to help demonstrate the Gambling Commission’s impact.
  1. Setting clear evidence-based requirements for licensees
  • During 2024-2025, the Gambling Commission published multiple consultation responses and fully implemented several reformative measures of the White Paper. This included launching the Financial Risk Assessment pilot scheme, introducing the Statutory Levy and increasing the coverage of Personal Management Licences.
  1. Being proactive and addressing issues at the earliest opportunity
  • The Gambling Commission developed and embedded an Industry Forum to provide insight into the Gambling Commission’s plans, the quality of its service and the wider environment in which licensees work.
  • A comprehensive strategic assessment of the fair and open licensing objective was conducted, which has resulted in the Gambling Commission focusing on a package of improvement works during 2025-2026 to improve transparency for consumers on the reasons for identity checks or account restrictions, particularly where these take place later in the consumer journey, such as on withdrawal.
  1. Regulating a successful National Lottery
  • The 4th National Lottery (“4NL”) Licence started on 1 February 2024 with Allwyn succeeding Camelot UK Lotteries Limited as the licensee. The Gambling Commission continued to prioritise and uphold the National Lottery duties. The 4NL controls have been fully embedded through the 4NL Programme, which includes agreed upgrades to the systems, the website and mobile application, to enhance the user experience and ensure the National Lottery is fit for purpose for the duration of the Licence and beyond.
  • The Gambling Commission notes its enforcement investigation against Allwyn for not delivering full functionality by February 2025, and also the active litigation brought against the Gambling Commission by The New Lottery Company, one of the unsuccessful bidders for the 4NL Licence.

The Gambling Commission also acknowledges:

  1. Its increased cooperation with international regulators during 2024-2025 and its intention to continue to build its international network.
  2. That the current system for Gambling Commission fees is “unusual and inflexible” and that it has begun to explore options for reforming its fee structure, which is a key commitment of the White Paper.

The remainder of the Annual Report discusses the financial and sustainability performance of the Gambling Commission, its corporate governance and internal risk management systems, and provides details of the Gambling Commission’s financial statements.

What’s next?

In the Foreword of the Annual Report, Gambling Commission Interim Chair, Charles Counsell, and its Chief Executive and Accounting Officer, Andrew Rhodes, both agree that:

“The substantial work done in 2024-2025 gives the Commission a great opportunity to make further steps forward in our work to make gambling safer, fairer and crime free. This is an opportunity everyone at the Commission is fully dedicated to making the most of in the year ahead.”

We encourage readers to read the Annual Report and the Gambling Commission’s Corporate Strategy 2024 to 2027. For further details on the Corporate Strategy, please see our previous blog. If you have any questions regarding the Gambling Commission’s various areas of focus in the industry, please do not hesitate to get in touch.

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16Jul

Gambling Commission improvements to financial penalties determination process

16th July 2025 Ting Fung Uncategorised 97

The Gambling Commission confirmed last week that improvements to its process for calculating and imposing financial penalties are imminent, with all changes to come into effect on 10 October 2025.

The changes aim to strengthen the transparency and consistency of how the Gambling Commission imposes penalties. John Pierce, Director of Enforcement and Intelligence at the Gambling Commission stated that:

“The…changes will to improve the efficiency and effectiveness of our enforcement work. Crucially, the new approach also encourages compliance at the earliest opportunity, supporting the protection of consumers alongside fair and proportionate outcomes for operators.”

The upcoming changes follow the Gambling Commission’s 2023 consultation on its Statement of principles for determining financial penalties (“Statement of Principles”) which will be updated to include the following changes:

  • providing a clear and distinct seven step process that the Gambling Commission will follow when assessing and imposing a financial penalty;
  • providing added clarity on the ‘disgorgement’ element of the penalty where clear consumer detriment and/or financial gain by the licensee has resulted directly from the breach;
  • providing transparency on how the Gambling Commission will determine the level of seriousness of the breach, which factors will be relevant, and introducing five levels of seriousness;
  • setting out a defined methodology for determining the starting point for the penal element of the penalty by reference to the seriousness of the breach and (in most cases) a percentage of Gross Gambling Yield (GGY) or equivalent income generated during the period of the breach;
  • including a methodology for addressing situations involving multiple breaches during a period; and
  • including a methodology for making adjustments to the penalty for aggravating and mitigating factors, deterrence and early resolution.

Further information on these changes, including the revised wording that will appear in the Gambling Commission’s Statement of Principles, is set out in its consultation response document.

Please also see our previous blog “Naughty or Nice?” – the Gambling Commission publishes its latest consultation on financial penalties and financial key event reporting.

Please get in touch with us if you have any questions.

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15Jul

DCMS research report on online prize draws and competitions market study, harms and potential interventions

15th July 2025 Tiffany Babayemi Uncategorised 92

On 26 June 2025, the Department for Culture, Media and Sport (“DCMS”) published a research report on online prize draws and competitions market study, assessment of harm and review of potential interventions (the “Report”). London Economics, a leading specialist policy and economics consultancy, was commissioned by DCMS in August 2023 to conduct research into the prize draws and competitions (“PDCs”) industry, with the view to providing DCMS with a better understanding of the PDCs market, and to inform consideration of whether any government intervention may be required in this sector and, if so, what form that intervention could take.

Purpose and objectives of the study

It is recognised that although the PDCs industry has grown rapidly in the UK in recent years, little research into this sector has been conducted to date. PDCs are similar to lotteries in that players purchase tickets to participate and prizes are awarded at least partly based on chance. However, they differ from lotteries in (at least) one of two ways: ‘prize draws’ offer a free entry route and ‘prize competitions’ have a skill element (e.g. answering a question) meaning that prizes are not allocated entirely by chance. Due to these characteristics PDCs are not regulated under the Gambling Act 2005 (unlike lotteries), meaning that they are not subject to gambling regulatory oversight. 

The research was structured around three overarching questions: 

  1. What is the size and scale of the prize draws and competitions market (both demand and supply)? (Section 2 of the Report) 
  2. What evidence is there of negative consequences from these products? (Section 3 of the Report)
  3. If any harm is identified, what would be the most effective and proportionate intervention? (Section 4 of the Report)

Section 3 reviews the evidence about whether there is any harm both gambling and non-gambling (consumer), arising from PDCs, and the impact that they have on the regulated lottery industry.

Section 4 focuses on the case for government intervention in the PDCs industry to address reducing the risk of gambling harm from PDCs, improving the integrity and transparency of PDCs, and protecting donations to charities. It suggests three interventions:

  1. Changes to gambling regulation

The Report considers the possibility of bringing PDCs under the oversight of the Gambling Commission and the requirement for PDC operators to have a licence to operate. Doing so would mean PDC operators would be required to implement player protection and transparency obligations, including:

  • Minimum age for participation
  • Provision of self-exclusion mechanisms
  • Safer gambling messaging and signposting to gambling harm charities
  • Caps on entries and/or spend per player
  • Limits on promotional offers
  • Ban on accepting credit card payments
  • Provision of information to consumers on how and where proceeds are used, on how prizes are allocated and the likelihood of winning a prize
  • Possible limits on sizes of prizes and ticket sales

Bringing PDCs within the Gambling Commission’s remit would give the Gambling Commission an opportunity to regulate the instant win games offered by operators, and to mandate gambling duty/minimum charitable donations for PDC operators.

  1. Greater enforcement of consumer protection rules

The Report offers an alternative option of pursuing more assertive enforcement of consumer protection rules, which could be an effective way to address consumer harm in the market for PDCs. Such an intervention could include the existing framework of rules for consumer protection, including the work done by consumer protection bodies such as the Advertising Standards Authority, which has previously taken action against potentially harmful advertising by PDC operators, for example in relation to the free entry route. Whilst this intervention method is expected to increase transparency in the market, it is noted that additional costs incurred by operators to comply with enforcement may be passed on to consumers in the form of increased prices or reduced quality. 

  1. Voluntary code of conduct

The Report suggests that the introduction of a voluntary code of conduct for operators of PDCs could be used to set industry standards for measures used to protect players from harm. Although such a code would not legally require PDC operators to implement the kinds of player protection measures that lotteries have, it may induce them to do so, especially if the alternative is direct regulation. Of the three possible interventions, this would be the quickest and least costly to implement, and of the three, was the preferred option of the PDC industry, with many PDC operators expressing an interest in being involved in a Working Group to develop such a code. However, this intervention runs the risk of having poor take-up and/or adherence, given its voluntary status.

The Report concludes that the three interventions outlined offer different strengths and weaknesses in addressing the case for intervention and carry different practical implications and different risks of negative consequences, and notes that all these considerations should inform the government’s eventual choice of intervention(s).

We encourage stakeholders to read the full Report published by the DCMS. Please get in touch with us if you have any questions about this research report or the PDCs market.

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09Jun

Gambling Commission welcomes OSR review of the Gambling Survey for Great Britain

9th June 2025 Tiffany Babayemi Uncategorised 105

On 22 May 2025, the Gambling Commission welcomed the findings from the Office for Statistics Regulation’s (“OSR”) review of the Gambling Survey for Great Britain.

The GSGB

In July 2024, the Gambling Commission published the Gambling Survey for Great Britain (the “GSGB”), which sets out the Gambling Commission’s official statistics on gambling behaviours in Great Britain. After several years of extensive development, the Gambling Commission asked OSR to review GSGB against its standards in the Code of Practice for Statistics to support continual improvement and provide independent assurance on quality and transparency.

OSR review of the GSGB

OSR published a public statement and comprehensive review of the GSGB and provided a series of important recommendations to further enhance its reliability and user engagement.

According to OSR, the absence of accredited official statistics status does not imply the GSGB is of lower quality or reliability than other surveys which have “accredited official statistics” status, and that the decision on which one to use should be based on user need and not accreditation status. OSR acknowledged how the Gambling Commission had presented clear and impartial information about the strengths and limitations of the methodological approach and statistical uncertainty of survey estimates.

While the Gambling Commission had already acted on several areas outlined in the report based on earlier feedback, the Gambling Commission has confirmed it will provide a further, fuller update in July 2025 in line with OSR’s request. The Gambling Commission has noted that its guidance for users of the GSGB was updated in February 2025, with clearer examples and dedicated contact channels for questions or concerns. The Gambling Commission has also committed to promoting this guidance more widely and embedding it across all future releases.

OSR noted that communication and user engagement will be critical to the GSGB’s ongoing success. In response, the Gambling Commission has announced plans to establish a GSGB Statistics User Group. Around 70 stakeholders have already expressed interest in joining the group, which will serve as a forum for dialogue, feedback, and shared learning.

Ben Haden, Director of Research and Statistics at the Gambling Commission, said:

“We welcome the findings from OSR, both the public statement regarding casework they have received in relation to GSGB and their overall review of the GSGB. We are pleased they recognise the huge amount of work that the team has put into developing and delivering the largest survey of its kind in the world. We also welcome OSR’s recommendations for further action, which closely align with work that we already have underway.”

Other recommendations

The Gambling Commission has noted that further improvements are underway in line with recommendations from the independent review of the GSGB by Professor Patrick Sturgis of the London School of Economics and Political Science. An experimental research project was launched by the Gambling Commission in April 2025 to test specific aspects of the GSGB’s methodology, and fieldwork is now in progress, with findings expected in Summer 2025. These results will inform the second GSGB annual report, due for publication on 2 October 2025.

Other recommendations that the Gambling Commission confirms it has already actioned:

  • survey improvement plan updated with further information for users;
  • new survey questions designed to validate GSGB findings against external data sources, such as GAMSTOP and the Bingo Association; and
  • improvements to accessibility and usability of GSGB outputs which links to guidance added to statistical outputs released on 22 May 2025.

Other recommendations that the Gambling Commission says it will action:

  • comparisons with forthcoming datasets from the Health Survey for England and the Adult Psychiatric Morbidity Survey, due in 2025;
  • publication of a communications strategy to improve how GSGB updates are shared; and
  • ongoing improvements to accessibility and usability of GSGB outputs to be informed by GSGB stats user group.

The Gambling Commission highlights its continued engagement with other official statistics producers, including Ofcom, the Money and Pensions Service, and devolved government agencies, and is reviewing user engagement frameworks to develop a formal user engagement strategy. In addition, the Gambling Commission stated that a full log of requests to the GSGB statistics from stakeholders has been published as part of its transparency agenda and will be updated quarterly.

The Gambling Commission encourages stakeholders to complete the GSGB Statistics User Group Sign Up Form to learn more about the GSGB or to express interest in joining the user group.

Please let us know if you have any questions on the above and sign up to our blog to receive updates on the continued journey of the GSGB.

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02May

HM Treasury Consultation: Tax Treatment of Remote Gambling

2nd May 2025 Harris Hagan Uncategorised 115

On 28 April 2025, HM Treasury launched a consultation on Tax Treatment of Remote Gambling (the “Tax Consultation”). The Tax Consultation aims to create a simpler, streamlined system by proposing a new, single Remote Betting & Gaming Duty which would replace the current tax regime for online operators.

Background and purpose of the Tax Consultation

Since 2014, remote gambling operators in the UK are subject to the following taxes:

  1. General Betting Duty (“GBD”) – Due at 15% of gross profit for fixed-odds bets, totaliser bets on horse or dog races, and bets taken on betting exchanges, 10% for sports spread bets and 3% for financial spread bets.
  2. Pool Betting Duty (“PBD”) – Due at 15% of gross profit on bets not at fixed-odds apart from those on horse and dog racing.
  3. Remote Gaming Duty (“RGD”) – Due at 21% of gross profit and is payable on the provision of online gaming to a UK customer.

In the Tax Consultation, HM Treasury proposes to move to a single tax called Remote Betting & Gaming Duty (“RBGD”) for UK-facing remote gambling in order to harmonise the existing duties into a single rate. This tax would have in its scope betting and gaming activities offered remotely, such as online casino, bingo, and remote betting, including general and pool betting. 

HM Treasury notes that “as remote gambling has matured, the distinctions in tax treatment between general betting, pool betting and remote gaming are less reflective of real-life distinctions in customer experience of the products”. Given the common features across the different forms of remote gambling, HM Treasury’s view is that “there is no longer a strong rationale to maintain this historical distinction” in the duty rates.

The Tax Consultation seeks views from stakeholders on the shape, scope, coverage, administration, and enforcement of the new proposed RBGD.

Consultation themes

  1. The proposal of a single remote gambling tax

This chapter explains why the government is considering introducing a single RBGD and a high-level view of how the tax would operate. For instance, the government acknowledges that operators providing gambling to UK customers have limited familiarity with the UK tax system and its administration, therefore simplification is at the heart of this proposal.

As explained above, the proposal is to harmonise the current duty rates for RGD, GBD and PBD in a single rate. Should the government proceed with the RBGD, the rate will be set as part of the Budget process.

  1. Basic framework and scope of the tax

This chapter details the proposed approach to use the existing ‘place of consumption’ (“POC”) framework. POC in this context means that a gamble or bet is subject to UK gambling duties if:

  1. the person making the bet is a ‘UK person’;
  2. it is made on UK premises where betting facilities are available.

This chapter also sets out the basis for calculation of taxable profits. Under the existing RGD, GBD and PBD regimes, gambling tax liability is calculated by applying the appropriate tax rate to taxable profits. Taxable profits are calculated based on stakes paid in, less prizes paid out. The government does not see the need to add unnecessary complexity by changing this and will mostly retain the current approach to establishing taxable profits (beyond the issues around freeplays, free bets and prizes discussed below).

Regarding the scope of RBGD, it is proposed that the government will be led by existing legal definitions of ‘remote’ gambling, as contained in section 154 of the Finance Act 2014, which reflect the definition of ‘remote gambling’ in section 4 of the Gambling Act 2005 and its regulatory licence structure.

Given the definition of ‘remote gambling’, all ancillary activities other than those covered by Bingo Duty, Gaming Duty or Machine Games Duty (and therefore already subject to other duties) would be in scope of RBGD. The remote betting activities of an on-course bookmaker and remote spread betting would also be activities included in RBGD. However, HM Treasury is seeking views on whether the inclusion of spread betting is appropriate, or whether alternative treatment is required.

  1. Consistency of treatment of free bets, freeplays, and prizes

As freeplays and free bets are subject to tax-specific treatments, HM Treasury wants to test whether RBGD should adopt a common treatment for freeplays and free bets offered for all remote gambling.

Free bets

The government proposes to align the tax treatment of remote free pool bets with the treatment of free bets as stakes for GBD purposes. This means that when a customer places a free pool bet, the value of that bet would be included in the licensee’s taxable amount. Any winnings paid to UK customers from these taxable free pool bets would count as deductible expenditure in their duty calculation.

Freeplays

Currently, there is an exception for re-wagering under RGD, where only the first use of a freeplay has a notional value for the purposes of tax calculation. The introduction of RBGD provides an opportunity to consider the application of the re-wagering exception, alongside the introduction of a re-wagering cap taking effect on 19 December 2025, following the  Gambling Commission’s Autumn 2023 consultation response.

The Tax Consultation welcomes suggestions for options to reform the treatment of freeplays and remove opportunities for avoidance.

Prizes

The government proposes to align the tax treatment of prizes by extending the current RGD provisions, including rules about valuation of prizes to all activities under RBGD. This would give betting providers scope for the deduction of non-money prizes and provide opportunities for innovation regarding prize offerings made to customers. 

Under RBGD, it’s proposed to align the tax treatment of prizes with the approach under GBD and PBD, so that only winning prizes can be deducted. 

  1. Registration, returns and sanctions 

This chapter sets out the government’s proposals for the RBGD administrative framework, including registration, remote filing, sanctions and enforcement.

To keep administrative changes for businesses to a minimum, the government intends to adopt the existing administrative framework for RBGD.

The government considers that the current sanctions available for enforcement of the tax regimes and unlicensed gambling are sufficient.

Next steps

The Tax Consultation will be open for 12 weeks, closing at 11:59pm on 21 July 2025. Responses can be submitted online, or by email to [email protected].

Please get in touch with us if you would like to discuss this matter further or require our assistance preparing responses. 

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24Apr

Game error leads to a million-pound win: is the High Court following precedent?

24th April 2025 Tiffany Babayemi Harris Hagan, Uncategorised 106

On 5 March 2025, the High Court granted an application for summary judgment in Corrine Pearl Durber v PPB Entertainment Limited EWHC 498 (KB) (“Durber v PPB”)in favour of Durber, who was seeking to recover her £1 million prize following a game error whilst playing an online slot machine in October 2020. This may come as a surprise following the decisions of the High Court and Court of Appeal a year ago in favour of Camelot in Parker-Grennan v Camelot UK Lotteries Ltd (“Parker v Camelot”) that it was only required to pay out a £10 prize rather than a £1 million prize to a customer subject to a similar game error.

In our previous blog, Match or no match: Camelot IWG Appeal dismissed, we summarised the facts of Parker v Camelot and analysed the Court of Appeal’s reasoning in agreeing with the High Court and dismissing the appeal. In this blog, we outline the facts of Durber v PPB and highlight the key points that distinguish the outcomes of the cases.

Background

In 18 October 2020, Durber placed a bet on an online game, ‘Wild Hatter’ (the “Game”), on PPB Entertainment Limited’s (“PPB”) PaddyPower website. The rules of the Game (the “Rules”) provided that it had 2 stages based on a combination of the old fruit machine reels (stage 1) and the old spin the wheel of fortune game (stage 2). In stage 1 of the Game, Durber was informed on her computer screen that she had won a jackpot prize and was moved to stage 2. Following a spin of the jackpot wheel, her screen revealed that she had won the “Monster Jackpot” just shy of £1.1m, as shown in the screenshot from the judgment:

However, Durber was later presented with a message stating that her win was £20,265.14, the ‘Daily Jackpot’, and no explanation for the change of sum was provided on the screen. As a result, PPB paid Durber the smaller Daily Jackpot win. Durber quickly complained to PPB and was told that the computer system which ran the Game made an error over the display because it had been mal-programmed (due to a coding error), and it should have pointed to the Daily Jackpot.

The parties’ arguments

Durber’s arguments:

  • she relied upon the Rules of the Game, which clearly stated “spin the jackpot wheel to determine which of the offered jackpot tiers will be won”, meaning that when she spun the wheel and won the Monster Jackpot, she was entitled to that prize;
  • that clauses B1 and B2 were not incorporated into the terms and conditions (“T&Cs”) because they were “onerous and unusual” and were not sufficiently brought to her attention, and that they were unfair under the Consumer Rights Act 2015 (“CRA 2015”); and
  • even if clauses B1 and B2 were incorporated, fair and enforceable, (i) the Rules took priority over the T&Cs in the event of inconsistency (pursuant to the preamble to Part B of the T&Cs) and (ii) clause B2 did not cover human errors.

PPB’s arguments:

  • in reliance on the T&Cs, PPB was not obliged to pay Durber the Monster Jackpot because:
    • clause B1 stipulated that the outcome of a customer’s play was determined by the random number generator (“RNG”) software and was definitive over any screen display, and it determined that Durber had only won the Daily Jackpot; and
    • clause B2, the exclusion clause, excluded PPB’s liability to pay customers in instances where there is a “system or communication error”.
  • PPB also sought to rely on arguments that clauses B1 and B2 are not ‘onerous or unusual’, but are commonplace and usual in the industry, and “did not cause a significant imbalance in the parties’ rights and obligations to the consumer’s detriment”.

Mr Justice Ritchie’s judgment

The High Court granted summary judgment in favour of Durber on the following basis:

(1) The Rules of the Game confirmed that the display on screen determines what a customer wins i.e. ‘what you see is what you get’ (“WYSIWYG”).

(2) The preamble of the T&Cs stated the Rules took priority over the T&Cs. Therefore, Durber had won the Monster Jackpot according to the Rules, which took priority over clause B1 which stated that the outcome is determined by the RNG.

(3) The scope of clause B2 did not cover human errors in programming the screen display of the Game and hence did not entitle PPB to exclude liability for Durber’s Monster Jackpot win shown on her screen.

(4) Clauses B1 & B2 were not incorporated into the T&Cs because “they were unusual and onerous” and were not adequately brought to Durber’s attention.

(5) Even if clauses B1&B2 were incorporated, they were too broad and therefore unenforceable under the CRA 2015.

Comparisons between the Parker v Camelot case and Durber v PPB case

The game rules

  • Parker v Camelot: the gambling operator rightly relied on its game procedures which stated the winning numbers would be the numbers highlighted and circled in green. In this case, the display showed that the customer had matched two different numbers; number 15, which would have resulted in a win of £10 and was flashing with a corresponding message to confirm the win, and number 1, which would have resulted in a win of £1m but there were no flashing lights or messages to reflect this. Lady Justice Andrews, in providing the leading judgment, explained that it was clear in the game rules that in order to win the prize, the consumer needed to click through to the end of the game by clicking “FINISH”, which showed the outcome was a £10 win, and regardless, “all of this should have been obvious to any reasonable player of the even if they did not read the Game Procedures”.
  • Durber v PPB: Durber’s screen showed the wheel spinning and then it stopped with the win arrow pointing to the Monster Jackpot which lit up and showed over £1 million in winnings.

Both consumers in each case were able to rely on the principle of ‘WYSIWYG’, and Justice Ritchie pointed out that “consumers expect, when playing online, that what their screen tells them is correct, true and reliable”. This highlights the importance of online gambling operators upholding the principle of WYSIWYG, and ensure it is reflected by their terms, to maintain consumer confidence that they will get fair and honest results with the operator they choose to spend money with.

Construction of the game rules and terms of contract

  • Parker v Camelot: the operator had both clear rules of the game and terms and conditions, for instance, there was a limitation of liability clause clearly covering defects in the game, the claiming and validation process which the operator could control was sufficiently explained, and the game procedures gave examples of how winning numbers would be displayed.
  • Durber v PPB: the operator also had set out the game Rules and had certain provisions in the T&Cs, however the exclusion clause (B2) did not specifically cover human error in software programming, such as the human error that caused the discrepancy between the server records and Durber’s screen display. The High Court made a direct comparison with Parker v Camelot and pointed out that even the use of a validation clause for large jackpots (i.e. wins over a certain level would need validation) would have “avoided the mischief” of an exclusion clause altogether.

Therefore, the contra proferentem rule of construction only required application in Durber v PPB, as the operator in Parker v Camelot ensured there was no doubtaround the rules and terms. As a reminder, the contra proferentem rule of construction states: “if there is any doubt about the meaning of a written term, the interpretation which is most favourable to the consumer shall prevail“. PPB should have explicitly excluded liability for such human error if that was a possibility of it resulting in the software programming error; the doubt around the exclusion clause meant it had to be construed against PPB. This highlights that care must be taken around clauses that set out the order of precedence in the event of inconsistencies, to ensure the right documents are being prioritised in the right situations. Failing this, inclusion of a validation process for larger wins over a certain level would bring greater clarity around such jackpots for both parties.

Incorporation of the terms of contract

  • Parker v Camelot: It was clear that the consumer would see, upon opening her online account, that there were overarching terms and conditions, as well as specific terms relating to the game rules. As the consumer had also been invited to read and confirm her acceptance of any significant updates to the terms by the method of clicking an online screen box indicating agreement, there was a clear general incorporation of the 3 sets of documents containing terms. It was accepted by the Court of Appeal that although a “click-wrap” procedure to accepting terms would not be sufficient to incorporate all the terms of every case of online operators, it was sufficient in this case.
  • Durber v PPB: the full contract terms were a combination of the Rules, the T&Cs and multiple other separate documents. Durber asserted that the terms ran to 44 pages of closely typed small print with numerous hyperlinks to other pages and that, given the “draconian nature of the limitations”, no reasonable consumer could be expected to read and understand the terms. Specifically, the terms relied upon by PPB were not sufficiently highlighted to Durber, prior to her opening the account and on each subsequent occasion she used PPB’s online services. In contrast to Parker v Camelot, the High Court agreed with Durber and found that PPB had a “complicated web of multiple documents”, and the relevant exclusions clauses were “unusual” and “onerous” and therefore, by their nature, were not incorporated into the T&Cs.

The criticism from Justice Ritchie in Durber v PPB carries significant weight for gambling operators as a useful reminder that any ‘unusual’ or ‘onerous’ clauses, particularly those that are potentially detrimental to consumers, must be specifically flagged or signposted to consumers in an obvious way, or the operator becomes at risk of key provisions, such as an exclusion of liability for a software error, being struck down as unenforceable.

Enforceability of the terms of contract

  • Parker v Camelot: as the consumer had “a real opportunity of becoming acquainted with the terms of the contract before she clicked the ‘I Accept’ button”, the Court of Appeal agreed that the network of contractual provisions was drafted clearly and sufficiently signposted. Therefore, there the terms did not cause a “significant imbalance in the parties’ rights and obligations arising under the contract, to the detriment of the consumer” pursuant to Regulation 5 of the Unfair Terms in Consumer Contracts Regulations 1999.
  • Durber v PPB: it was considered that even if the clauses were incorporated into the contract, they were not – due to their breadth – fair or enforceable under the CRA 2015. In particular, Justice Ritchie highlighted that clause B1 makes PPB’s internal records supreme, as evidence of whether there was a win, therefore rendering what Durber sees on her screen irrelevant. Justice Ritchie concluded that “this clause is objectively unusual and unexpected for any consumer playing this game under these Rules who would expect the screen to provide both the determination of or at least valid prima facie evidence of the win”.

The court’s assessment of fairness and transparency of the operator’s T&Cs through the application of consumer protection laws, in a way, discarded the relevance of whether clauses B1 and B2 were sufficiently incorporated in the T&Cs. This highlights the importance of operator’s terms (i) being transparent and complying with section 68 of the CRA 2015, and (ii) being fit for purpose for digital content provided to consumers, as required by section 35 of the CRA 2015.

Lessons learned

By following precedent, the High Court Durber v PPB ruling has provided further clarity where gambling operators are found defending themselves against consumer claims in relation to software errors and malfunctions.

Whilst the nature of the dispute was similar to Parker v Camelot, in that both consumers experienced discrepancies between the prize displayed on their screens and the winning amounts recognized by the operators, it is clear why the High Court ruled in favour of the consumer in Durber v PPB. This ruling provides another useful reminder for operators of the importance of clarity in game procedures, contract provisions and scope of exclusion clauses, handling conflicts between documents, and bringing ‘onerous’ terms to the attention of consumers.

Please get in touch with us if you require any assistance reviewing and/or drafting website terms and conditions, rules of play or other commercial gambling contracts.

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23Apr

Gambling Commission issues industry warning notice on regulatory returns submission

23rd April 2025 Tiffany Babayemi Uncategorised 116

On 17 April 2025, the Gambling Commission issued an industry warning notice to licensees regarding timely submission of regulatory returns. The warning follows a series of fines issued against licensees who have failed to submit a regulatory return by the deadline, and reminds licensees that they face regulatory action if they fail to complete or submit regulatory returns on time.

The industry warning notice notes that since October 2024, more than 10 businesses have been fined up to £750 for not correctly completing and submitting regulatory returns within the required timeframe.

John Pierce, the Gambling Commission’s Director of Enforcement, said:

“Despite early engagement and the issuing of advice notices, further failures to comply with the regulatory returns process were identified in these cases. Operators are expected to understand their reporting obligations and must ensure returns are submitted on time via our online portal.”

“Repeated breaches and persistent non-compliance is likely to result in escalating enforcement action.”

We take this opportunity to remind licensees of the key requirements for regulatory returns.

Requirement of submission

On 1 July 2024, licence condition 15.3.1 of the Licence Conditions Codes of Practice was updated to require all licensees to submit accurate regulatory returns on a quarterly basis, and to align the reporting periods as follows:

  • Quarter one – 1 April to 30 June
  • Quarter two – 1 July to 30 September
  • Quarter three – 1 October to 31 December
  • Quarter four – 1 January to 31 March.

All returns must be submitted within 28 days of the end of the quarterly period.  If a licensee has ceased trading in a licensed activity, or has not yet started to trade but still holds a valid licence at the time a return is due, it must submit a ‘nil’ return. A separate return must be submitted for each licence type. 

The next due date

The next quarterly regulatory returns are due by 28 April 2025.

How to submit

Regulatory returns need to be submitted via the eServices digital service on the Gambling Commission’s website.

Late or inaccurate regulatory returns

Under section 342 of the Gambling Act 2005, a licensee commits an offence if it misrepresents or fails to reveal information that it is asked to provide, unless it has a reasonable excuse. The Gambling Commission may prosecute licensees which provide information which is false or deliberately misleading.  Where returns are submitted late, are incomplete or inaccurate, the Gambling Commission will contact the licensee. If the licensee does not submit an up-to-date, accurate regulatory return after the Gambling Commission has contacted them, there is a risk that the Gambling Commission will refer the matter to its Enforcement Team.

Next steps

We encourage licensees to set reminders to submit their regulatory returns on time, and ensure the accuracy of their returns. Further information on regulatory returns can be found in the Gambling Commission’s regulatory returns guidance and published updates on the changes to regulatory returns effective 1 July 2024.

Please get in contact with us if you have any questions about your regulatory returns or if you would like assistance with any compliance or enforcement matters.

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