The state is making a decisive effort to tighten the noose around illegal bettingand overall unlicensed gambling, presenting a bill described as a comprehensive legislative intervention with institutional, administrative and operational measures. At the Cabinet meeting, Minister of National Economy and Finance Kyriakos Pierrakakis tabled a framework that aims to change the way illegal activity is prevented, detected and suppressed, both in physical spaces and on the internet. The philosophy of the draft law focuses on protecting citizens, with particular reference to young people, as the data presented shows significant penetration of the phenomenon in ages up to 44 years and especially in ages 18 to 34. At the same time, the bill seeks to safeguard public revenues, as reference is made to significant losses for the Public, while highlighting the risks that the players themselves recognize, from loss of money to inability to collect winnings and lack of responsible gaming limits.
Illegal betting: Take down, identification and digital intervention by EEEP
A central pillar of the intervention is strengthening the immediate digital action tools of the Gaming Supervision and Control Committee. A new explicit competence is provided, so that it can request through rapid administrative procedure the removal or deactivation of access to online content connected to the organization, promotion or advertising of illegal games. The so-called take down acquires a practical character, as it concerns information society service providers, from websites and social networking platforms to search engines. At the same time, the ability is given to request identification data for specific users, accounts or websites connected to illegal activities, strengthening the rapid mapping of the network behind the advertising or conduct of illegal betting.
Illegal betting: Black list, closures and fines, what changes in controls
The bill describes a radical modernization of the black list with automated mechanisms for blocking access to illegal websites, as well as expanding the registry to include more information about involved natural or legal persons, violations and imposed sanctions. In the same package of measures, the mechanism of immediate administrative closure of establishments where illegal games are conducted returns and is strengthened. Moreover, an additional administrative measure of license revocation by the relevant Municipality is provided, to prevent the reopening of a space that has been identified as violating.
Particular emphasis is placed on advertising and promotion of illegal gambling. An independent and strict administrative sanction is established for the first time for advertising or promoting unlicensed games, especially through digital channels, influencers, streamers, digital advertising networks and affiliates. The sanction per violation ranges from €5,000 to €50,000, while the overall framework of criminal and administrative sanctions appears graduated and stricter in aggravated cases, such as professional activity or involvement of minors, where fines reach up to €800,000. At the same time, EEEP’s human mechanism is strengthened, with an increase in staff positions and provision for special scientific personnel, while the Gaming Inspectors Corps is upgraded, acquiring the status of special investigative officers for cases where indications of criminal offenses arise. Overall, the draft law aspires to transform supervision from a slow and fragmented process into an immediate intervention mechanism, aimed at reducing the spread of illegal betting on the internet and in the market.
Main axes of the bill in detail
The main axes of the draft law are:
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Strengthening the immediate digital intervention tools of the Gaming Supervision and Control Committee (E.E.E.P.)
A new, explicit competence of E.E.E.P. is established, so that it can:
* request, through rapid administrative procedure, the removal or deactivation of access (take down) to online content connected to the organization, promotion or advertising of illegal gambling, directly from information society service providers (websites, social networking platforms, search engines, etc.),
* request from the said providers identification data for specific users, accounts or websites related to illegal online betting or gambling activities.
The purpose of the regulation is to equip E.E.E.P. with modern and effective immediate digital intervention tools, to ensure rapid cessation of illegal activity on the internet, strengthen market supervision and effectively protect players and public revenues.
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Strengthening E.E.E.P.’s human resources
Substantial strengthening of the human resources of the Gaming Supervision and Control Committee (E.E.E.P.) is provided, to effectively respond to the increased supervisory requirements of a rapidly evolving and technologically complex market, strengthen its supervisory role in the gambling market and contribute decisively to combating illegal gambling, as well as protecting players, especially minors and vulnerable social groups.
In this context, the total number of E.E.E.P.’s staff positions increases from 80 to 110, of which 70 administrative staff positions and 40 special scientific staff positions with expertise in gambling, data analysis and digital activity supervision.
It is noted that today the Committee is staffed by 72 employees (permanent and seconded), which means that with the new regulation the staff is significantly strengthened, substantially fortifying its operational capacity and control effectiveness.
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Investigative powers for the Gaming Inspectors Corps
With the proposed regulation, members of E.E.E.P.’s Gaming Inspectors Corps acquire the status of special investigative officers, when their inspections reveal indications or evidence of criminal offenses related to illegal gambling, according to article 52 of law 4002/2011. The purpose is to substantially strengthen control capabilities and effective prosecution of related offenses, without the burden of additional bureaucratic procedures.
The provision constitutes a new substantial upgrade of the Gaming Inspectors Corps’ role. Until now, according to the current framework of law 4141/2013, E.E.E.P. inspectors mainly exercise administrative control and impose administrative sanctions, without having explicit status as investigative officers for investigating criminal offenses.
With the new regulation, when inspections reveal indications of offenses under article 52 of law 4002/2011, Corps members act as special investigative officers, according to article 31 of the Criminal Procedure Code (law 4620/2019). Consequently, they acquire criminal preliminary investigation powers, such as collecting evidence, compiling case files and submitting them to competent prosecutorial authorities, without being limited exclusively to administrative control.
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Modernizing E.E.E.P.’s “black list” operation
The operation of the unlicensed online gambling providers list (“black list”) maintained by E.E.E.P. is modernized and expanded, with provision for recording additional information not only about the websites themselves, but also about natural or legal persons organizing, conducting or promoting illegal gambling, as well as related violations and imposed sanctions.
At the same time, a mechanism for faster and automated blocking of access to illegal websites is introduced, substantially strengthening the “black list’s” effectiveness as a tool for preventing and immediately stopping illegal activity on the internet, especially regarding illegal gambling conduct, advertising and promotion.
The regulation’s goal is more effective confrontation of illegal gambling conduct, promotion and advertising using modern technological tools, as well as strengthening consumer protection and smooth operation of the legal, licensed market.
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Immediate administrative closure of establishments with illegal games
The proposed regulation reinstates and strengthens the mechanism of immediate administrative closure of establishments where illegal gambling is conducted, without the required license or certification. Immediate administrative closure was provided in paragraph 2 of article 51 of law 4002/2011, which was abolished in 2014. The measure’s reinstatement aims at rapid cessation of illegal activity and preventing its continuation in physical spaces.
Furthermore, revocation of the relevant operating license by the competent Municipality is provided as an additional administrative measure, in cases of illegal gambling detection, to effectively prevent violating establishments’ reoperation under the same or different regime.
The regulation strengthens the control framework’s deterrent effect, fortifies legality in the gambling market and contributes to protecting citizens and legitimate business activity.
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Strict administrative sanction for illegal gambling advertising and promotion
The proposed regulation establishes a new, independent administrative sanction for advertising and promoting illegal gambling, ranging from five thousand (5,000) to fifty thousand (50,000) euros per violation. The sanction is imposed on any natural or legal person who, by any means or method, advertises, promotes or markets unlicensed gambling or related services to third parties.
The provision specifically targets confronting illegal betting promotion through modern digital channels and commercial communication practices, such as by influencers, streamers, digital advertising networks, affiliates and other advertisers.
This ensures that every form of commercial communication and promotion in gambling concerns exclusively legal licensed providers, strengthens consumer protection and limits illegal activity spread in terrestrial and online environments.
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Rationalization of criminal sanctions for illegal gambling
The draft law provides for changing the criminal sanctions framework of article 52 of law 4002/2011 aimed at rationalizing them, considering the proportionality principle and criminal court practice in illegal gambling cases.
As criminal court jurisprudence proves, the current regime led in practice to inapplicable or reduced penalties through category changes by courts, undermining their deterrent character. The proposed regulation introduces a two-speed criminal sanctions framework establishing lower minimum penalty limits so they can be applied by courts, but even stricter criminal sanctions when specific aggravating circumstances occur.
Specifically: Regarding illegal gambling conduct, the penalty system is modified by abolishing the distinction by means of commission and adopting unified treatment.
Now, for non-gambling games, imprisonment of at least three years and monetary penalty from €10,000 to €500,000 is provided (currently: imprisonment of at least 3 years and monetary penalty €100,000-200,000 per gaming machine or €200,000-500,000 via internet).
For gambling games, imprisonment of at least ten years and monetary penalty from €50,000 to €700,000 is provided (currently: imprisonment of 10 years and monetary penalty €700,000).
In aggravated cases, such as professional commission or minor participation, imprisonment of at least ten years and monetary penalty €100,000-800,000 is imposed (currently: no corresponding graduation existed).
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Supporting prosecution in criminal trials
The proposed regulation clarifies the procedural framework for representation supporting prosecution in criminal trials concerning illegal gambling, especially in cases of illegal gambling via electronic computers in establishments, such as internet cafés and related spaces.
Specifically, the ability of the provider granted exclusive gambling rights to appear supporting prosecution in trials for article 52 violations of law 4002/2011 is explicitly provided, insofar as they relate to activities concerning the regulatory framework for gambling conduct and the provider’s provided rights. This clarifies their procedural position and facilitates cohesive prosecution support in related criminal procedures.
The regulation contributes to forming a clear and unified framework regarding representation supporting prosecution in illegal gambling cases, strengthening coherence and effectiveness of criminal treatment of related violations.
