African Gambling Regulation: A Tale of Shifting Tax Strategies
The landscape of African gambling regulation is undergoing a period of intense change, as nations across the continent experiment with different tax models to balance revenue generation with market stability. While some countries are finding success with new frameworks, others face challenges with policies that are proving difficult to enforce and sustain.
Kenya's New Framework Attracts International Interest
Kenya is emerging as a model of stability with its 2025 Gambling Control Act. The new law established the Gambling Regulatory Authority (GRA) and, as of July 1, 2026, introduced a clear licensing cycle and a more predictable tax regime. This includes a 5% tax on deposits into betting wallets and a 5% tax on withdrawals.
John Mutua, CEO of the Association of Gaming Operators Kenya (AGOK), called the provisions "far-reaching in the best sense," noting they provide a solid foundation after years of turbulence. This newfound stability is already paying dividends, with tax collection reportedly increasing by 29%. The positive shift has also recaptured the attention of international operators, with Super Group CFO Alinda van Wyk confirming, "we will try Kenya again."
The new regulations also introduce strict advertising controls, requiring GRA approval for all ads, and mandate that licensed entities have at least 30% local shareholding, ensuring greater accountability.
The Fragile State of "Winners' Taxes" Across the Continent
In contrast to Kenya's success with transaction-based levies, many other African nations are grappling with the complexities of a direct tax on player winnings. These gambling tax laws have often proven difficult to implement, leading to industry opposition and concerns about players moving to unlicensed markets.
| Country | Tax Policy on Winnings | Status & Impact |
|---|---|---|
| Ghana | 10% Withholding Tax | Repealed in April 2025. Failed to meet revenue targets and was considered a burden on low-income bettors. |
| Uganda | 15% Withholding Tax | Reinstated July 2026. Casino operators report it is "practically impossible" to collect on continuous table play. |
| Zimbabwe | 25% Withholding Tax | Increased from 10% in Jan 2026. Faces strong opposition over fears it will drive gambling underground. |
| Lagos, Nigeria | 5% Withholding Tax | Newly introduced. A lower rate combined with KYC through the National Identification Number. |
| South Africa | No Winners' Tax | Proposing a 20% national GGR tax on operators, moving away from taxing individual players. |
"When you have 100 people playing at the same time, different games, there is cash on the tables, cashing out, cashing in using the same money, it is practically impossible to collect."
- Bob Kabonero, Uganda Gaming Operators Association
European Market Snapshots: Greece and the UK
Meanwhile, in Europe, established markets are reporting on performance and grappling with the accuracy of key industry data.
Greece Reports Steady GGR Growth in 2025
The Hellenic Gaming Commission (EEEP) released its 2025 annual report, revealing a 6.7% increase in total gross gaming revenue (GGR) to €3.07 billion. The land-based sector remains dominant, accounting for 61.2% of the total GGR at €1.88 billion, while the online segment grew by 10.5%.
Key regulatory efforts in Greece included launching the first phase of a central player registry to create a unified self-exclusion framework and intensifying enforcement against illegal gambling. The number of blocked domains increased from 9,590 to 12,642 in 2025, as illegal activities were estimated to cost the state around €400 million in lost revenue.
UK's Problem Gambling Data Sparks Controversy
The UK Gambling Commission published its latest Gambling Survey for Great Britain (GSGB), which found the UK problem gambling rate (players scoring 8+ on the PGSI) fell slightly from 2.7% in 2024 to 2.4% in 2025. Overall gambling participation also saw a marginal dip, from 60% to 59% of adults in the past year.
However, the survey's methodology has drawn sharp criticism. Dan Waugh, a partner at Regulus Partners, argued that the Commission is publishing results it knows are inaccurate. He highlighted the risk of "topic salience bias," where a survey advertised as being about gambling over-samples engaged gamblers, thus inflating the statistics compared to previous NHS Health Surveys.
"The Health Survey was therefore deservedly considered a ‘Gold Standard’... the GSGB represents more than a few steps backwards in terms of reliability."
- Dan Waugh, Regulus Partners
Industry Initiatives: 1xCare Bolsters Oversight
Amidst evolving regulatory pressures, some operators are enhancing their commitment to responsible gambling. 1xCare, a non-profit initiative from the owner of 1xBet, has established a four-member independent Advisory Committee to strengthen its player protection programs.
The committee is chaired by Simon Westbury and includes experts like Quirino Mancini (regulation), Chris Bird (sports integrity), and Sissel Weitzhändler (public policy). This team will oversee 1xCare's core pillars, including education, technology, support, and research, with genuine authority over governance and funding.
