Georgia excludes over 1.5 million citizens from gambling

Georgia has enacted one of the most restrictive gambling frameworks in the world, formally excluding more than half of its population from legal gambling participation. The recent reforms, which include raising the legal gambling age to 25 and expanding a national exclusion registry, position Georgia as a regulatory outlier with no direct international precedent. Experts and regulators globally are observing the country’s approach with keen interest, as it represents an unusually stringent model of state-led gambling control.

Comprehensive update of the national exclusion registry

By the end of 2025, Georgia had completed a comprehensive update to its national gambling exclusion registry, resulting in 1,577,247 citizens being formally barred from gambling activities. This figure exceeds the political target of 1.5 million exclusions established by former Prime Minister Irakli Garibashvili. With Georgia’s total population estimated at around 3.7 million, these measures now affect more than half of all citizens.

The expansion of the registry is part of broader reforms enacted through amendments to the Georgian Law on the Organisation of Lotteries, Gambling and Games of Chance, coupled with executive orders designed to broaden the scope of mandatory restrictions. Enforcement responsibility has been assigned to the Georgian Revenue Service, which now oversees both the licensing of gambling operators and the centralised exclusion system.

Raising the legal gambling age to 25

One of the most notable elements of Georgia’s regulatory overhaul is the decision to raise the minimum legal gambling age to 25, making it the highest threshold in Eastern Europe. Previously, the legal gambling age in Georgia followed more conventional standards aligned with the majority of European markets. Government officials have cited evidence suggesting that younger adults are particularly susceptible to gambling-related harm, justifying the unprecedented increase in the minimum age.

This age restriction applies universally across all licensed gambling products, including online platforms, land-based casinos and lottery services. While gambling remains legally permitted for those above the threshold, the reform significantly reduces the portion of the adult population eligible to participate, representing a dramatic shift in domestic gambling policy.

Scope and categories of exclusion

The national exclusion registry extends far beyond age-based restrictions. All public-sector employees are automatically prohibited from gambling under the revised framework, as are individuals with criminal records. Additional exclusions include those who voluntarily self-identify as vulnerable to gambling-related harm.

By December 2025, approximately 36,000 citizens had entered the exclusion registry through voluntary self-exclusion measures. A limited number of individuals were added following direct court orders. However, the overwhelming majority of exclusions were implemented administratively through the Revenue Service’s online systems, allowing the state to enforce compliance efficiently and consistently.

Once an individual is listed on the exclusion registry, restrictions apply across both online and land-based gambling. Licensed operators are legally required to verify every customer against the central database prior to granting access to gambling services. Failure to comply carries significant penalties under Georgian law, reflecting the government’s commitment to strict enforcement.

Biometric verification and centralised enforcement

To ensure compliance, Georgia has introduced mandatory biometric identification and centralised age verification for all gambling venues. Operators must connect directly to government databases, allowing real-time checks against the exclusion registry. This system significantly reduces the possibility of circumvention and strengthens regulatory oversight.

Officials have described these technological measures as part of a broader effort to shift gambling oversight from a model of self-regulation to one of direct state control. By leveraging digital enforcement tools, the government seeks to maintain tighter supervision over the sector and to safeguard citizens from potential harm.

Economic implications and taxation reforms

Despite the extensive restrictions on domestic gambling participation, Georgia has not eliminated gambling from its economy. Instead, the government appears to have repositioned the sector as one primarily oriented toward foreign visitors and tourism. By limiting domestic access, authorities aim to mitigate harm while maintaining the economic benefits generated by international gambling activity.

In parallel with exclusion measures, Georgia implemented a new tax framework in 2025. Gambling licences are now subject to a 15% levy on gross gaming revenue, while winnings withdrawn by Georgian citizens are taxed at 5% under personal income tax rules. Foreign players remain exempt from this taxation structure, reinforcing the distinction between domestic and external market participants.

The approach reflects a careful balance between harm reduction and economic interest. By focusing on foreign revenue while restricting domestic access, Georgia is attempting to preserve financial benefits without increasing local exposure to gambling-related risks.

Continuity of regulatory policy

Although Irakli Kobakhidze replaced Garibashvili as prime minister in 2025, the overall regulatory direction has remained consistent. The ruling DREAM government continues to frame gambling policy as a public welfare matter rather than a tool for economic expansion. Officials have repeatedly emphasized that gambling must not interfere with citizens’ financial security, social stability or quality of life.

Under this framework, economic benefits from gambling are considered acceptable only when they do not increase domestic participation or vulnerability to harm. This position distinguishes Georgia from other markets that often prioritize revenue generation over public welfare considerations.

Georgia as a global outlier in gambling regulation

Georgia’s regulatory framework now stands apart from nearly all other jurisdictions worldwide. No other regulated market has combined a gambling age as high as 25 with mandatory exclusions affecting more than half of the population. Most countries rely on targeted player protection measures, voluntary self-exclusion programs and responsible gambling tools. By contrast, Georgia has opted for a sweeping, state-led approach designed to limit exposure for large segments of society.

Experts note that this model represents a unique experiment in public policy. While the immediate aim is to reduce gambling-related harm, questions remain regarding the potential long-term social and economic consequences of excluding such a significant portion of the population. Observers are particularly interested in whether the combination of mandatory exclusion, biometric verification and age restrictions will effectively balance harm reduction with the sustainability of the sector.

International interest and implications

Georgia’s approach has already attracted international attention from regulators, industry groups and public health experts. While the measures are legally permissible under national law, they challenge conventional frameworks for balancing personal freedom, economic interests and consumer protection.

In particular, the state-led enforcement model, underpinned by biometric verification and centralised registries, raises questions about privacy, technological oversight and administrative capacity. However, Georgian authorities appear confident that the systems in place can manage these challenges while delivering the intended harm reduction outcomes.

The long-term success of Georgia’s model may influence regulatory debates in other countries, especially in Eastern Europe and the wider post-Soviet space, where governments face similar challenges related to gambling-related social harm.

Conclusion

Georgia’s sweeping reforms represent a bold departure from international norms. By excluding over 1.5 million citizens, raising the legal gambling age to 25 and introducing centralised biometric verification, the country has established a highly restrictive, state-driven model of gambling control. While the measures are aimed at reducing harm and protecting public welfare, they also mark a significant departure from conventional approaches that balance economic and social objectives.

As the regulatory framework matures, its effectiveness and broader societal impacts will be closely observed. Georgia may emerge as a model for other countries seeking to enforce stricter gambling protections or it may illustrate the challenges inherent in implementing wide-ranging exclusions in a modern economy.

FAQs

What changes did Georgia introduce to its gambling laws in 2025?
Georgia raised the legal gambling age to 25 and expanded the national exclusion registry to over 1.5 million citizens, introducing mandatory restrictions for certain groups.

Who is responsible for enforcing the new gambling regulations in Georgia?
The Georgian Revenue Service is responsible for enforcing gambling regulations, overseeing operator licences and maintaining the centralised exclusion registry.

Which groups of people are automatically excluded from gambling?
All public-sector employees, individuals with criminal records and anyone under the new legal gambling age of 25 are automatically excluded from gambling.

How does voluntary self-exclusion work in Georgia?
Individuals can voluntarily request to be added to the exclusion registry if they identify themselves as at risk of gambling-related harm.

Are the exclusions applicable to both online and land-based gambling?
Yes, all exclusions apply across online platforms and land-based gambling venues and operators must verify users against the central registry.

What measures has Georgia introduced to prevent circumvention of restrictions?
Georgia requires biometric identification and centralised age verification for all gambling venues, connected to government databases for real-time checks.

How does the new taxation system apply to gambling in Georgia?
Licences are subject to a 15% levy on gross gaming revenue, while winnings withdrawn by Georgian citizens are taxed at 5%. Foreign players are exempt from this tax.

What is the government’s rationale for imposing these strict gambling rules?
The government emphasizes protecting citizens’ financial security, social stability and quality of life, prioritizing public welfare over market expansion.

Will foreign visitors be affected by Georgia’s gambling restrictions?
No, the restrictions mainly target domestic citizens. Foreign visitors can still participate in gambling activities under the existing regulatory framework.

How does Georgia’s approach compare to other countries?
Georgia is unique in raising the legal gambling age to 25 and excluding over half its population, whereas most countries rely on targeted player protection and voluntary self-exclusion.