Europe

TOTO Online has promised to reassess player files to make sure its customer due diligence is enhanced following a notice being issued by the Dutch gambling authority, Kansspelautoriteit (KSA), over anti-money laundering violations.

The KSA recently investigated TOTO Online operations – TOTO and Winnitt – discovering violations of the Netherlands’ Money Laundering and Terrorism Financing (Prevention) Act (Wwft).

In response, the Dutch lottery Nederlandse Loterij, the parent company of TOTO Online, said in a statement that it wants to work with the KSA to combat money laundering and has worked with the regulator to improve its operations, a position that was echoed by the KSA.

The operator will also improve its customer due diligence by reassessing player files and making further changes where required.

“TOTO acknowledges the importance of effective supervision by the KSA. We continuously work to strengthen our position as the safest and most responsible operator, including with regard to anti-money laundering compliance.

“Together with the KSA, we are committed to achieving the best possible results in combating money laundering. In consultation with the Ksa, TOTO has already further tightened its processes, procedures and work instructions during the course of the investigation.

“As a result, we meet the regulatory requirements with regard to risk assessment, transaction monitoring and verification of the source of funds used, as is to be expected of us.

“The KSA has also indicated that our customer due diligence should be further improved. We are therefore reassessing player files and will take additional measures where necessary.”

Monitoring and documenting failures

According to the KSA, the investigation discovered that TOTO Online “failed to comply with the ongoing monitoring of business relationships and their transactions”, which is a requirement after initial client due diligence.

In addition, the regulator said the operator “does not sufficiently document why new facts or events do not lead to an adjustment of client risk classifications and why it takes certain control measures”, while also the investigation into player funds origins was inadequate.

While improvements have since been made by TOTO Online, a timeline of six months has now been set for the operator to resolve the outstanding violations, after which the KSA will conduct a re-inspection of its operations.

FDJ United’s Unibet brand has told iGaming Expert that it “could have acted sooner” in some duty of care cases with players in the Netherlands, which resulted in a multi-million euro fine from the Dutch gambling authority, Kansspelautoriteit (KSA).

However, the operator has contested some of the conclusions the Dutch regulator has reached with its investigation, stating that the rules during the period of the failings “were less specific than they are now”.

Issuing its defence to the sanctions, Unibet has challenged the KSA over the clarity of Dutch iGaming regulations. The Netherlands’ iGaming framework has been subject to significant changes in the years since the online market was launched in 2021 and during which Unibet’s breaches occurred.

Duty of care failures

The KSA issued a €4m fine to Unibet’s operator in the Dutch market, Optdeck, for failing to comply with duty of care responsibilities between 14 July 2022 and 1 July 2024.

After requesting various player files from Optdeck, the regulator found that all files showed duty of care violations. These included depositing thousands of euros per day with no intervention upon signs of excessive gambling, as well as income information being requested weeks later, even after substantial losses occurred.

The KSA added that the interventions selected were “far too light”, such as easily dismissible pop-up windows, as well as that during financial checks, income streams that aren’t permitted, such as a company account, were included.

Michel Groothuizen, Chair of the KSA, commented: “When there are signs of excessive gambling behaviour and someone wagers a large amount of money in a short period of time, a provider must promptly investigate the source of the money. This can be done by requesting income information.

“It is essential that providers conduct this analysis properly, because not all financial resources can simply be included. The KSA takes violations of its duty of care very seriously and will continue to take strong action against them.”

Rules were less specific than they are now

FDJ United responded sharply to the fine against Unibet. Although acknowledging some mistakes, the French multinational has highlighted some key elements of the KSA investigation and subsequent decision which it disagrees with.

“Unibet takes this matter and its duty of care to provide a safe gaming environment at all times very seriously,” an FDJ United spokesperson told iGaming Expert.

“We acknowledge that, with the knowledge we have now, we could have acted sooner in the case of some of the players investigated. At the same time, we do not agree with some of the conclusions.

“The decision relates to the period June 2022–July 2024, when the rules were less specific than they are now. We applied those rules to the best of our knowledge. In its decision, the KSA applies a stricter interpretation than what was stated in the rules at the time. The legislation and regulations have since been tightened and, since October 2024, there has been a clearer framework for gambling limits.

“Since September 2024, we have been working with a new risk detection system that identifies risky gambling behaviour more quickly and leads to stricter interventions. We are also taking additional measures to protect players. The issues referred to by the KSA are no longer possible on our platform.”

Previous fines

This isn’t the first time Unibet has received disciplinary action from the KSA this year. Back in June, the regulator sent two warnings to the operator for advertising and autoplay failures linked to a cycling team sponsorship and a BonusBuy function in one of their titles.

Unibet noted at the time that the brand took the KSA’s warning “very seriously and took immediate action” to correct the errors, including adjusting branding and compensating affected players.

However, the FDJ United brand received another sanction in September for offering unauthorised sports betting – football betting on corner kicks and yellow cards, as well as on under-21 matches – on several occasions between October 2022 and May 2025.

Under the country’s gambling law, it is prohibited to offer betting on certain matches and event components to protect the integrity of the sport and prevent match manipulation.

The KSA said it repeatedly contacted Unibet about the offering but saw “insufficient improvement and a real risk of recurrence”, so a penalty of €75,000 per week on Unibet for each week in which a violation occurs was imposed, with €450,000 being the maximum penalty.

At the time, Unibet stated that following previously identified errors in its sportsbook offering, it collaborated with its sportsbook provider “to modify the systems to be compliant and aligned with the feedback from the KSA”.

Turkish banks have begun issuing direct warnings to customers, informing of new legal and criminal liabilities linked to accounts that have engaged or facilitated illegal online gambling. .

The warnings were authorised by Justice Minister Yılmaz Tunç, coordinating the AKP government’s “Action Plan” against illegal gambling, which calls on all authorities to cooperate in “eradicating illicit gambling” – as a pledge led by President Recep Tayyip Erdoğan.

The command follows the Ministry of Justice’s approval on 15 December, of the 11th Judicial Package. A sweeping legislative overhaul has been authorised to expand prosecutorial powers and enable enforcement on financial crime and illegal transactions facilitating illicit online gambling operators.

New enforcement powers see prosecutors granted direct powers of seizure, suspension and prosecution, while amendments to Turkey’s Penal Code introduce tougher prison sentences and heightened financial penalties for both individuals and groups involved in illegal gambling.

The reforms have particular significance for banks and payment organisations, as the 11th Judicial Package introduces new duties and enforcement tools aimed to hinder the financial infrastructure supporting illegal betting. Participants and intermediaries now face higher fines, wider asset confiscation, and the freezing of bank and digital payment accounts for up to 48 hours during investigations.

Banks and payment processors are also subject to adhere to “cooperative demands” with Turkish authorities. . Fiancial institutions must provide requested transaction data, account records and payment histories to prosecutors or courts within 10-days, with non-compliance potentially resulting in administrative penalties or criminal sanctions against both institutions and responsible executives.

Announcing the reforms, Tunç said the government was determined to close enforcement gaps that had allowed illegal betting networks to operate “unpunished and at scale.”

“Illegal betting and online gambling are not only crimes, but also channels that finance organised crime and cause serious social harm,” Tunc stated, adding that new reforms were designed to enable effective deterrence and help wider authorities with enforcements

During the Christmas period, Turkish media reported that Ziraat Bankası, Türkiye İş and Garanti BBVAwere the first institutions to issue customer warnings, signalling the start of a sector-wide rollout.

The measures will extend to mobile payment applications and digital wallet providers, bringing fintech platforms under the same compliance and reporting framework as traditional banks.

MASAK begins zero tolerance enforcements

The enforcement effort is being coordinated by MASAK, Türkiye’s Financial Crimes Investigation Board, which is leading the action plan against illegal betting and money laundering.

MASAK has intensified scrutiny of bank transfers, payment intermediaries and digital wallets, working closely with prosecutors and the Ministry of Interior to disrupt financial networks linked to unlicensed gambling.

Tunç has stressed that financial intelligence will be central to the strategy. “Our objective is to identify illegal activity at its source, follow the money and intervene before criminal proceeds are concealed or transferred abroad,” he said.

The scale of the crackdown was highlighted in December, when authorities detained 42 suspects in a major illegal betting investigation that uncovered transactions exceeding TL6bn (€140m). The operation resulted in widespread asset seizures, including bank accounts and cryptocurrency wallets, reinforcing official warnings that illegal betting has developed into a major organised financial crime threat.

Enforcement has also expanded into the media sector, following a series of high-profile investigations into platforms accused of promoting or facilitating illegal betting activity.

Recent developments saw GAİN Medya targeted as part of a major platform linked to Anahat Holding, amid allegations of illegal betting, organised crime and money laundering. Senior executives were arrested as part of the investigation, while authorities moved swiftly to secure assets believed to be connected to criminal proceeds.

The operation led to the appointment of the Savings Deposit Insurance Fund (TMSF) as trustee to seven companies affiliated with Anahat Holding, marking a rare and decisive intervention into a national media group. Investigators also carried out broad asset seizures across media and related businesses, including movable and immovable property, financial accounts and corporate assets.

Officials have indicated that the GAİN Medya case reflects a broader shift in enforcement priorities, with regulators now targeting not only payment channels and consumers, but also media, advertising and distribution networks accused of sustaining demand for illegal gambling services.

2026 warnings & targeted actions

Looking ahead to 2026, the Ministry of Justice has reaffirmed its full backing of President Erdoğan’s pledge to eradicate illegal gambling by whatever means necessary. As such, Tunç stated that the Ministry is prepared to amend or introduce legislation where necessary to strengthen enforcement against illegal gambling and related financial crime.

While enforcement efforts have so far focused primarily on domestic activity, MASAK and the Ministry of Justice have confirmed that the next phase will involve international cooperation and cross-border enforcement. Authorities have signalled increased scrutiny of jurisdictions accused of hosting or enabling operators targeting Turkish consumers illegally, naming Cyprus, Georgia, North Macedonia and Armenia as priority states.

President Erdoğan has reiterated a policy of zero tolerance towards illegal gambling, warning that enforcement intensity will be significantly escalated in 2026. The government has framed the full termination of illegal gambling as a structural objective, with Erdoğan stating that the dismantling of illegal gambling networks is expected to be completed before Türkiye’s next general election, with all Turkish authorities due to be held accountable.

LeoVegas has landed in trouble with the Dutch gambling authority over player protection failures.

Kansspelautoriteit (KSA), the regulator responsible for the market’s oversight in the Netherlands, reminded that gambling companies are required to comply with the country’s duty of care policies to minimise the risks of gambling harm.

“As far as [we are] concerned, LeoVegas did not comply sufficiently with that duty of care,” the KSA added.

The compliance infringements cover the period between October 2023 and May 2024, for which the regulator requested a number of player information files from LeoVegas and concluded that ‘all of them’ exhibited duty of care breaches.

One example saw a player incurring losses equal to “tens of thousands of euros” in a short timescale, with LeoVegas failing to intervene on time. Another player who exhibited “serious” signs of gambling harm was only interacted with through a pop-up notification, which is typically very easy to dismiss.

Michel Groothuizen, Board Chairman of the KSA, added: ‘The duty of care is an essential part of the wider range of player protection. Providers must respond adequately to immoderate play.

“Large losses in a short time are an important signal of this. We have intensified our supervision of the duty of care and gambling providers are tackling this hard, because such an important part should not be neglected.”

As a result of the compliance shortcomings, LeoVegas – owned by MGM Resorts International – will now have to pay €500,000 in penalties.

New changes still coming in 2026
Regulatory scrutiny aside, 2025 has been an incredibly active and testing year for the Dutch market. January saw the first out of two gambling tax increases taking place, going up from 30.4% to 34.2% – with a further increase to 37.8% scheduled for next year.

Not only that, but the market also faced a government fallout earlier in June, which left a number of reforms to the Remote Gaming Act (KOA) up in the air for quite some time.

Coming out of a fresh election cycle, the Netherlands is certain to remain a dynamic gambling jurisdiction even in 2026.

The Hellenic Gaming Commission (EEEP) has confirmed that it will conduct a “comprehensive assessment” of Greece’s casino market, in response to concerns raised by the Ministry of Finance over the steady decline in tax revenues generated from land-based casino licences.

Chairman Antonis Vartholomaios confirmed that the review aims to “establish a modern and sustainable framework that captures both the structural evolution of Greece’s gambling market and international best practices.”

The project will focus on upgrading the current regulatory framework for “sustainable land-based casinos, taking into account new market dynamics shaped by online gambling growth and integrated resort developments since 2018.”

Findings will be presented to the Ministry of Finance, with the new framework scheduled for implementation by spring 2026. Vartholomaios acknowledged that smaller regional casinos have struggled to survive the digital transition, while larger, multi-purpose venues offering diversified entertainment have proven more resilient.

“Everything in terms of the traditional casino concept is coming under huge pressure,” he said. “Integrated resorts deliver a more resilient business model that combines gaming with tourism, leisure and cultural amenities.”

Current investment projects such as Hard Rock–GEK Terna’s Elliniko Resort and Regency Entertainment’s new venue in Maroussi are seen by the Commission as “critical to changing the face of Greece’s gaming and tourism sector.”

Shift from concessions to individual licences

The last major reform of the Hellenic Law on Gambling was applied in 2018, and replaced the legacy concession-based system that had existed since the 1990s with transferable individual casino licences administered by the EEEP.

The 2018 framework aimed to attract international investment, improve transparency and align with EU standards on AML and fiscal compliance.

New investors could apply for personalised operating licences instead of state-granted regional concessions. The law also introduced two key licence categories Class-A for large-scale integrated resorts and Class-B for smaller casinos alongside a gross gaming revenue (GGR)-based tax model – with both Class-A and B licences taxed at 20% GGR.

Reforms enabled casino relocation and privatisation, and included the transfer of Parnitha Casino to Maroussi and the launch of the international tender for the Elliniko Integrated Resort Casino.

Yet on reflection, while the system helped attract new capital, it also fragmented the traditional casino landscape, leaving smaller regional operators exposed to rising costs and online competition.

Decline in casino tax

The Ministry of Finance has highlighted a continued fall in land-based casino tax receipts as a central reason for the new review. Although total gambling tax revenues have grown thanks to online expansion, the share from physical casinos has fallen below 10%, compared to more than 30% a decade ago.

This decline reflects the closure of smaller venues and the migration of players to regulated digital platforms. The EEEP has been tasked with identifying measures to revive regional casino activity, improve tax efficiency, and ensure that future projects — particularly Integrated Resorts — generate measurable fiscal returns for the state.

Oversight and illegal gambling

Alongside its land-based review, the EEEP is tightening governance of the online gambling market, which now represents the majority of regulated activity in Greece.

The Commission reported that CEE group Super Technologies (SuperBet) recently secured a Type 2 licence for RNG and live casino games and is now seeking an additional licence to enter the online betting segment.

The Commission’s wider priorities also include tackling illegal gambling, which remains significant at an estimated €1.7 billion in unlicensed bets last year.

Despite this, Greece remains one of Europe’s most channelled gambling markets, with around 80% of activity occurring through licensed operators, behind only the UK at 90%.

Vartholomaios concluded: “We need to continue modernising regulation, supporting legitimate operators and protecting the public interest if we want to preserve both the credibility and integrity of the Greek gambling market.”

Russia is in the process of adopting a national self-exclusion registry, state media has reported.

Passing second and third readings in Russia’s State Duma, the lower house of Parliament, provisions are already in motion to introduce a self-exclusion scheme that will be fully operational by 1 September 2026.

From that date onwards, players wanting to gain more control over their gambling behaviour can do so by submitting an application to the Unified Gambling Regulator (ERAI). A customer can request to be taken off the self-exclusion registry afterwards, but not before a year has passed after the admission.

It will be mandatory for a customer’s bank account details to be provided when an application is made, so that all funds deposited and present in their account are refunded.

The law passed first reading earlier in May, led by members of the State Committee on Physical Culture and Sports. There will be financial repercussions for operators failing to comply with the new regulations.

Bookmakers and lottery operators will be barred from accepting funds from self-excluded individuals.

Retail venues that offer casino and slot machine games will be restricted from allowing such individuals access to their premises, and advertising to self-excluded persons will be strictly prohibited. Licence holders that do accept bets from self-excluded individuals are facing fines of between 50,000 Rubles (£470) to 100,000 Rubles.

Almost all types of gambling were restricted in Russia back in 2009. Physical casinos currently exist only in four designated areas – the Altai Republic, the Kaliningrad Oblast, Krasnaya Polyana, and Primorsky Krai.

Lottery games are fully state monopolised, operated by Russia’s Ministry of Sports and the Ministry of Finance. Meanwhile, bookmakers do enjoy a more liberalised regime by being allowed to operate across all of Russia’s vast territories.

That doesn’t go without caveats, however, with licensed operators still subject to strict rules – with a certain capital threshold being required to receive a licence, while all online bets having to go through Russia’s Center for Interactive Bets (CUPIS).

Romania’s National Office for Gambling (ONJN) has launched a €5m public funding programme aimed at strengthening national efforts to prevent and treat gambling addiction, marking the most significant public-health intervention undertaken by the regulator to date.

The initiative, titled “Conștient și Liber” (Aware and Free), was formally opened to public consultation on Monday. The consultation will remain open for 30 days and will inform the final structure of the programme ahead of a planned rollout in 2026.

ONJN confirmed that the funding framework will support projects focused on gambling harm prevention, treatment, education and research, as Romania continues to face growing political and public-health scrutiny over gambling exposure — particularly among young people.

€5m fund backed by ONJN revenues
The programme will distribute a total of RON 25.4m (€5m) and will be financed directly from ONJN’s own revenues, in line with Romania’s Gambling Law (OUG 77/2009).

Funding eligibility is restricted to initiatives that promote responsible gambling, protect vulnerable groups and address gambling addiction. ONJN has outlined a clear division in how funds will be allocated.

Approximately €1.2m has been earmarked for infrastructure projects, including the establishment, expansion or equipping of specialist gambling addiction treatment centres. These grants will be available exclusively to public authorities.

The remaining €3.8m will support a broader range of initiatives, including prevention and education programmes, protection of minors, counselling and treatment services, academic research, digital harm-reduction tools and national responsible gambling campaigns. This funding stream will be open to both public bodies and civil society organisations.

ONJN President Vlad-Cristian Soare described the programme as a landmark moment for the regulator.

“This programme represents a first in ONJN’s history,” Soare said. “It enables us to finally deliver on legal provisions that existed but had never been fully implemented.”

“We are launching for public debate the ‘Aware and Free’ programme, through which we will provide €5,000,000 in non-repayable funding for the implementation, by public authorities or NGOs, of programmes that are critically needed for Romanian citizens”.

2026 rollout & actions
As part of the consultation process, ONJN is seeking stakeholder feedback on both the Methodology for the Evaluation, Selection and Financing of Projects and the Applicant’s Guide, which together set out eligibility criteria, assessment procedures and funding conditions.

Under the provisional timetable, project submissions are expected to open later this year, with the first funded initiatives scheduled to launch from April 2026.

ONJN has encouraged a wide range of stakeholders — including non-governmental organisations, public authorities, educational institutions, healthcare providers and recognised religious denominations — to submit proposals and observations during the consultation period.

The funding initiative comes amid heightened concern over gambling harm in Romania, particularly among young adults and minors.

Recent European-level studies have consistently ranked Romania among the countries with the highest exposure to gambling advertising for teenagers, placing it as the third most exposed market in Europe. Policymakers and public-health bodies have warned that early exposure, if left unaddressed, risks translating into long-term addiction, debt and wider social harm.

Vlad Soare: ONJN on frontline to tackle problem gambling
Reflecting on his tenure having been appointed as President of ONJN, Vlad Soare added: “When I took office six months ago, I committed to implementing measures that were mandated by law but remained dormant — from effective self-exclusion systems and stronger inspections to unlocking funding for prevention and treatment.”

“Today, we are taking a further step forward by putting the ‘Aware and Free’ programme out for public discussion and committing €5m in non-repayable funds to projects that Romania’s youth and vulnerable groups urgently need.”

Soare confirmed that this marks the first public funding call issued by ONJN and indicated that a second funding round could follow in 2026, subject to the programme’s performance.

ONJN scrutiny set to intensify in 2026

Despite ONJN returning to the centre of Romania’s gambling regulatory framework through a renewed enforcement push and the launch of its first large-scale harm-reduction funding programme, the authority is expected to remain under sustained political scrutiny throughout 2026.

Divisions persist within Romania’s governing coalition over the future direction of gambling regulation, with lawmakers holding sharply contrasting views on whether ONJN should be strengthened, restructured or fundamentally replaced.

The most outspoken criticism has come from the reformist USR party, which has called for ONJN to be disbanded and for Romania to undertake a comprehensive rewrite of the Law of Games of Chance. USR legislators argue that long-standing governance failures and regulatory blind spots have eroded confidence in the authority, requiring structural reform rather than incremental adjustments.

ONJN Director General Vlad-Cristian Soare has acknowledged the political fallout surrounding the regulator but has urged the incoming government to support his mandate, positioning his tenure as a corrective phase aimed at restoring transparency, credibility of enforcement and institutional trust.

Since taking office, Soare has prioritised the activation of long-delayed measures, including national self-exclusion systems, public registers, enhanced digital oversight tools and dedicated funding for prevention and treatment programmes.

Attention now turns to President Nicușor Dan, and the direction he will set on gambling policy as he seeks to unify a four-party coalition with fundamentally different approaches to industry governance.

Dutch gaming operator JOI Gaming Ltd has been hit with a €400,000 penalty by Kansspelautoriteit (KSA) after a two-year legal process.

The legislative breaches refer to the use of multiple personalities, considered to be role models by the regulator, for the promotion of the operator’s offers around the 2023 Jack’s Racing Day – a major combined motorsport event in Europe.

It is strictly forbidden to use role models in the advertising of almost all types of gambling, including sports betting and online casino. Enforcing this amendment of the KOA Act, introduced last year, falls under the KSA’s efforts to protect vulnerable consumers and minors in the Netherlands.

According to the Dutch gambling rulebook, role models include anyone that is widely known in the Netherlands – from current and retired footballers to influencers. This is because their status as successful individuals with desired lifestyles can be impressionable to children.

Lotteries do represent an exemption where such a person can be used for marketing purposes, but only under specific and very strict conditions.

Multimedia posted on JOI’s social media accounts when the infringement took did include such individuals in various activities promoting the event, such as signing caps or posing for photos with event staff.

While JOI Gaming initially complied with the order to take down the social posts, according to the KSA, the fine is making its way into the public domain only now because of a partial interim injunction granted by the court after an apparent appeal by the operator.

The regulator has proven several times that it does not mess about when it comes to facilitating a safe and sustainable market. Much of these enforcement actions came amid a political atmosphere leaning towards more gambling reforms in the Netherlands.

Most recently, Unibet – the brand owned by French giant FDJ United – was fined €4m as a result of a failure to comply with the Dutch duty of care standards, following another €450,000 penalty incurred by the same operator.

As for the market in general, reforms introduced by former Legal Protections Minister Franc Weerwind to overhaul the Remote Gaming Act (KOA) are still ongoing, but have already proven successful especially around player protection.