German interior ministers accelerate gambling treaty reforms to strengthen enforcement before 2026

• State interior ministers approve draft amendments to Interstate Treaty on Gambling ahead of scheduled 2026 review to enhance IP blocking powers
• Official GGL regulatory authority maintains €5 million security deposit requirement alongside €185,000 licensing fees for market entry
• Federal Administrative Court ruling against GGL blocking powers prompts urgent legislative response to combat illegal operators

Germany’s Conference of Interior Ministers has fast-tracked amendments to the Interstate Treaty on Gambling 2021, approving draft reforms in June 2025 well before the scheduled 2026 review period.

The amendments focus on strengthening enforcement capabilities against illegal gambling operators, particularly through enhanced IP blocking and content removal powers.

Federal Oversight

The Interstate Treaty on Gambling 2021 (Glücksspielstaatsvertrag – GlüStV 2021), which entered force on 1 July 2021, serves as Germany’s primary regulatory framework for online and land-based gambling across all 16 federal states.

According to the official treaty text, the legislation aims to “prevent the emergence of gambling and betting addiction,” “steer the natural gambling instinct of the population into orderly and supervised channels,” and “ensure the protection of minors and players”.

The Gemeinsame Glücksspielbehörde der Länder (GGL), Germany’s joint federal gambling authority based in Halle (Saale), assumed full regulatory control on 1 January 2023. The regulatory body’s central mandate includes examining and approving cross-state online gambling offerings whilst ensuring licensed operators comply with player protection and anti-manipulation rules.

Enhanced Enforcement to Target Illegal Operators

The proposed amendments introduce explicit authority for regulators to implement IP blocking and content removal measures against illegal gambling sites through intermediary service providers.

This legislative response follows a March 2025 Federal Administrative Court ruling that invalidated the GGL’s attempt to block access to Lottoland, effectively removing the regulator’s primary enforcement tool against offshore operators.

Under current regulations, the GGL maintains responsibility for “combating illegal gambling offerings and advertising for such services,” according to its official mandate. However, enforcement actions have been limited by existing legal frameworks that have prevented comprehensive site blocking measures.

Official Licensing Requirements and Market Entry Conditions

The GGL administers Germany’s gambling licensing system, with operators required to obtain permits for cross-state online gambling activities. Berlin’s official licensing guidance confirms that providers must connect to the national OASIS cross-operator blocking system as a mandatory condition.

Licensed operators face substantial financial requirements, including security deposits and annual supervisory fees. The regulatory framework imposes a 5.3% tax rate on gross gaming revenue alongside operational restrictions, including €1 maximum stake limits for online slots and mandatory monthly deposit caps of €1,000 across all platforms.

The Interstate Treaty establishes strict player protection measures, including mandatory identity verification, connection to the national self-exclusion database, and compliance with advertising restrictions designed to prevent targeting of vulnerable populations.

Market Structure and Federal Coordination

Prior to GGL’s establishment, gambling regulation remained distributed across multiple federal states. Saxony-Anhalt previously held responsibility for online poker and virtual slot machine licensing, Hesse managed sports and horse race betting permits, whilst other states oversaw various lottery and charitable gambling categories.

The federal handover in January 2023 consolidated these regulatory functions under the GGL’s unified authority, creating standardised licensing conditions and enforcement procedures across all German states. This transition aimed to eliminate regulatory inconsistencies that had characterised Germany’s fragmented approach to gambling oversight.

Legislative Timeline and Implementation Process

The Interstate Treaty on Gambling 2021 replaced earlier versions that had failed to achieve comprehensive state adoption. The current framework emerged after years of regulatory uncertainty that left Germany’s online gambling market in legal limbo, attracting unlicensed international operators whilst creating consumer confusion about legal gambling options.

An interim evaluation of the Interstate Treaty launched in December 2023 continues assessing the effectiveness of current regulations, with findings expected to influence the amendment process as federal states modify the legislation during 2025.

The ministers’ decision to accelerate reforms ahead of the 2026 scheduled review reflects growing concerns about enforcement capabilities in Germany’s regulated market.

The upcoming legislative process requires approval across all federal states before the amended treaty can take effect, representing a critical period for Germany’s efforts to establish effective oversight of its online gambling sector whilst maintaining the Interstate Treaty’s core player protection objectives.