In the last few years, there have been significant legislative changes that aim to open the UAE up to the gambling market. While gambling is one of the world’s most popular hobbies, with the number of players expected to exceed 977.3 million by 2029, it is restricted within the UAE.
Due to its global reputation as a tourist and business hub, the UAE has begun altering regulations to accommodate tourists by legalizing some forms of gambling and expanding licenses for providers. In this article, I’ll explore what these changes mean for the future of the UAE’s gambling regulations.
Background of gambling in the UAE
The Persian Gulf has a long and varied history with gambling. Traces of this pastime can be found in history as far back as mid-800 BCE with betting on camel racing and poetry competitions. Despite this, legislation around gambling became increasingly strict in the area, with most forms being banned around the 8th century, which resulted in players facing harsh custodial and corporate punishments.
In modern times, gambling has become strictly legislated throughout the area, including the UAE where it remains illegal in most cases. All casino games are currently forbidden, from slots and roulette to card games like poker, and are punishable by fines up to £5,000 or two years in prison.
These punishments are even harsher for those facilitating activities and can carry up to 10 years in prison. However, recent legislation has begun to open the country up to the market by allowing gambling in some cases and contexts.
Changes to gambling legislation
In recent years, there have been changes to regulations surrounding the gambling industry within the UAE. These changes aim to open the country up to the market by allowing gambling in some contexts.
Establishment of the GCGRA
In September 2023, the UAE established a new regulatory body to monitor gambling activities called the General Commercial Gaming Regulatory Authority (GCGRA). It provides licenses, regulates and supervises all gambling activities throughout the country.
The GCGRA was created to regulate the current forms of gambling, sports betting at the two Dubai horse tracks, Nad Al Sheba and Jebel Ali, and the UAE lottery. However, the plan for the future of regulations expands beyond this into online and casino sectors.
While the GCGRA website was initially locked by a password for the public, it now displays plans for the future of gambling throughout the country. These principles indicate that regulations are likely to expand to include online gambling activities, such as slots, roulette, blackjack and poker. In addition to online gambling, the authority aims to regulate land-based providers.
License for UAE lottery
After their establishment in 2023, the GCGRA began issuing licenses within the UAE. The first to be awarded one was a UAE lottery provider, The Game LLC, whose license was announced through a press conference in July 2024. The provider specializes in offering a range of lottery activities to players, including national and local lotteries and scratch cards.
The chairman of the GCGRA, Jim Murren, announced: ‘The launch of the UAE lottery is a pivotal event that not only marks the establishment of a disciplined world-class regulatory framework for lottery activities but also underscored our commitment to nurturing a secure and enriched commercial gaming environment in the UAE’.
Murren’s reference to commercial gaming further suggests that legislation will expand to include other gambling activities. Through their website, the GCGRA defines commercial gaming as one of chance or skill that involves an amount of money being wagered. To create an enriched commercial gaming environment, it seems likely we’ll be seeing a greater number of licenses issued to providers of gambling activities.
Building on relationships
In October 2024, the first license for a commercial casino was awarded to Wynn Resorts and their joint proposal with RAK Hospitality Holdings to open Wynn Al Marjan Island. The proposal features a $3.9bn resort, which combines a state-of-the-art casino and a hotel with over 1,500 luxury rooms. The plans also include over 20 restaurants, spas, clubs, high-end shops and a nine-acre pool area.
The hotel provides a wealth of options for entertainment including DJs, laser and light shows, an exclusive theatre and a casino-style gaming floor. The resort is set to open to guests in 2027 in the emirate Ras Al Khaimah, less than an hour from Dubai Airport.
Ras Al Khaimah’s crown prince, Sheikh Mohammed bin Saud bin Saqr Al Qasimi, is the chairholder of partner company RAK Hospitality Holdings. The partnership between UAE-based companies and American providers represents a significant opportunity for gambling to expand into the Gulf.
Following Wynn’s move, other land-based providers have begun outlining potential ventures in the country. The second to apply for a license was MGM, which announced their application in September 2024. In the past, MGM has partnered with the UAE-based company Dubai World to construct a string of casinos called CityWorld within Las Vegas.
The resort giants also partnered with Hospitality and Leisure in 2017 to work on a luxury development at Jumeirah Beach in Dubai. The Jumeirah Beach resort is currently under development and will feature over 1,000 rooms. Although MGM doesn’t currently possess a gambling license, they hope to incorporate a casino in the Jumeirah resort.
A report by CBRE International Research valued the potential UAE casino market at $8.5bn with CEO John DeCree describing the area as ‘the Las Vegas of the Middle East’ and the ‘next frontier of gaming’. Providers such as MGM are keen to move into the area, however it’s apparent that the country wants to take its time expanding into the market.
While GCGRA’s Jim Murren pointed towards ‘other licenses’ for casinos being issued over the next ‘10 to five years’, for now the Wynn Resorts casino will be the sole provider in the country. Although I think it is likely we’ll see other major players following the path of Wynn into this untapped market, this will be at a slow pace to ensure regulations are met.
Upcoming changes to regulations
Through the establishment of GCGRA and granting of licenses to land-based and online providers, it’s clear there is a shift towards legalized gambling in the UAE. However, the new framework lays out several rules that players and providers will have to adhere to. Firstly, gambling through sites which aren’t licensed by the GCGRA, including overseas ones, will result in penalties.
Players will also have to familiarize themselves with responsible gambling practices such as setting time and spend limits and self-exclusion tools. One of the focuses of the authority is on ‘cooling off’ periods, during which providers must cease all contact with a player for a minimum of 72 hours. This is more than the 48-hour minimum in place across most regions, including throughout Europe.
The regulations outlined by the GCGRA suggest the future landscape of gambling within the UAE will be a highly regulated market with strict regulations for both players and providers. As a result, it’s unlikely we’ll see the breadth of options we see in other territories, instead providers will be discerningly selected.
Those who wish to operate within the country will also have to invest significantly in the venture through partnerships and licensing, meaning the big players will have a notable advantage. One model we can consider in the case of the UAE’s gambling expansion is Singapore where the market is based on integrated resorts, like Marina Bay Sands. The future of gambling within the UAE will also be resort-based, at least for the time being.
The future of gambling in the UAE
Over the last few years, there have been significant changes in legislation to open the gambling market within the UAE. Through the GCGRA, gambling companies are likely to begin seeking licenses to access the huge potential of the country’s market. Although we are only at the beginning of these changes, with only one land-based license issued to Wynn Resorts, I believe other companies will follow.
It is clear that the UAE is being cautious in gambling’s introduction, meaning it will likely be a few years before we see other casinos being opened. Overall, the changes to legislation show the UAE is beginning to welcome the gambling market and will continue to follow this path in the future.
Numa Jabara is a respected iGaming expert with over five years of experience within the industry. Through his knowledgeable reviews and articles, players gain expert insights that allow them to have the best experience while gambling. A keen eye for detail allows Numa to provide the most accurate, up to date content while overseeing all content published on ArabCasinoGuide.
