Ireland’s gambling habits come under scrutiny in new ESRI research report

A new gambling study of gambling behaviour in Ireland found that nearly four in ten people who first open an online account to bet on horse racing or sport later try other forms of gambling, including online casino games, slots and scratch cards. The research was conducted by the Economic and Social Research Institute (ESRI) for the Gambling Regulatory Authority of Ireland (GRAI).

Published on 4 November 2026, the report examines online and in-person activity, account use, marketing exposure and attempts to reduce gambling. It comes as Ireland continues to implement a new regulatory framework for the sector.

The ESRI surveyed 1,000 people who had gambled at least once in the previous year. The sample was designed to represent gamblers in Ireland. Its findings reflect respondents’ reported experiences and should not be treated as evidence about every consumer or individual operator.

Online accounts and wider gambling activity

More than three-quarters of respondents, 77 per cent, had gambled online during the previous year. Some 59 per cent had gambled in person and 44 per cent had used both channels.

The report found that 80 per cent of respondents had at least one online gambling account. Of those account holders, 53 per cent had more than one, while around one in ten online gamblers had four or more accounts. Favourable odds, simple registration and promotional offers were among the reasons respondents gave for opening additional accounts.

Almost four in ten people who initially opened an account to bet on horses or sport later tried other products, including casino games, slot machines, bingo or scratch cards. The survey does not establish that account registration caused this change, but it highlights how consumers may move between product categories after joining an online service.

Marketing, spending and daily routines

One in seven respondents said their most recent online gambling session followed an email, app notification or gambling advertisement. Around one in five said they received notifications every day, highlighting the importance of clear marketing preferences and effective ways to stop unwanted communications.

In their most recent session, 26 per cent of online gamblers said they had lost “a lot”, compared with 17 per cent of those who gambled in person. This reflects respondents’ descriptions of their latest session rather than total losses across the sample.

Around one in five online gambling sessions interrupted another activity, including work or family time. A quarter of respondents were trying to reduce their gambling or planned to do so. Among those already cutting back, about one in three said they were gambling the same amount or more than a year earlier.

Participants also reported that opening an account or depositing money could be easier than closing an account or withdrawing winnings. The finding raises questions about whether essential account functions are equally accessible to customers.

Regulatory questions for Ireland

The research is relevant to the phased implementation of the Gambling Regulation Act 2024 and the GRAI’s licensing and oversight responsibilities. The government timetable set 1 July 2026 as the start of remote betting licensing, with the transition for in-person betting operators scheduled for 1 December 2026.

The study identifies account opening and closure, spending limits, advertising standards and self-exclusion as areas for regulatory attention. It also points to the importance of accessible customer controls and clear ways to manage marketing preferences. Further research may help establish how app and website design influences behaviour and whether particular marketing practices are associated with harm.

The report does not allege misconduct by any named operator. It presents survey findings that can help policymakers assess how gambling services are used and where safeguards may need to be strengthened.

Views from the government, ESRI and GRAI

Launching the report, Minister for Justice, Home Affairs and Migration Jim O’Callaghan said: “I am very pleased to launch this latest report in the ESRI’s research series examining the gambling landscape in Ireland.

“Research of this nature plays a vital role in informing both the Gambling Regulatory Authority of Ireland (GRAI) and my Department, enabling us to continue to develop an evidence-based regulatory framework that is responsive to the public health and social needs of our communities while ensuring that gambling is regulated in a fair, effective and transparent manner.”

Pete Lunn, head of the ESRI’s Behavioural Research Unit, said: “Many consumers gamble for entertainment without experiencing harm, but our previous research for the GRAI found that 1 in 30 adults in Ireland now experience problem gambling, with many more at risk of harm. This new study sheds light on the pathways that people take that may ultimately lead them to harm. It raises issues of what online consumers are signing up for and whether they know and understand that.”

GRAI chief executive Anne Marie Caulfield said: “One of the GRAI’s statutory functions is to monitor and review national and international developments in gambling practices to identify issues of concern which may give rise to an increase in harmful gambling.

“In order for us to identify practices of concern and to assess the effectiveness of regulations, we need to understand the real-life experiences of consumers when they gamble in their everyday lives and increasingly in online environments. It is within this context that the GRAI commissioned the ESRI to undertake to capture a real world understanding of gambling behaviour.

“This research confirms the need for new obligations which will be placed on licensed operators, particularly around account opening and closing requirements and the ability to set spending limits and advertising restrictions. The research highlights specific challenges associated with online accounts. More than half of online account holders are gambling using multiple accounts, often simultaneously across different platforms. Our focus will be on practical and proportionate protections, including marketing standards, effective account controls and self-exclusion arrangements, while ensuring that regulation responds appropriately to developments in the ways in which people gamble.”

Conclusion

The ESRI research provides an important contribution to the understanding of gambling behaviour in Ireland at a time when the country is strengthening its regulatory framework. Its findings highlight how online gambling has evolved beyond traditional betting activities, with consumers increasingly using multiple accounts and exploring different gambling products. The figures also draw attention to the role of promotional communications, account accessibility and the potential disruption gambling can cause to everyday responsibilities.

For the Gambling Regulatory Authority of Ireland, the findings offer valuable evidence to consider when developing practical consumer protection measures. Account opening and closure procedures, spending limits, advertising restrictions and self-exclusion arrangements will all be important areas as the new licensing system develops. However, the effectiveness of these measures will ultimately depend on how consistently they are implemented and whether consumers can access and use them without unnecessary barriers.

The research also reinforces the importance of distinguishing between recreational gambling and patterns that may expose individuals to harm. Not every online account holder experiences difficulties and the survey should not be interpreted as evidence that all gambling activity leads to negative outcomes. Nevertheless, the reported experiences provide legitimate reasons for continued monitoring, independent research and proportionate regulatory oversight.

Looking ahead, Ireland's challenge will be to establish a gambling market in which commercial activity operates alongside meaningful safeguards and transparent consumer rights. The ESRI findings provide a useful starting point for that process. Whether the regulatory changes achieve their intended objectives will become clearer through continued assessment of gambling behaviour, operator compliance and the accessibility of support services. Ultimately, a sustainable regulatory environment will depend not only on the rules introduced but also on how effectively they protect consumers in their everyday interactions with gambling services.

FAQs – ESRI gambling study in Ireland

What is the main finding of the ESRI gambling study?
The study found that nearly four in ten people who initially opened an online account to bet on horse racing or sport later moved into other gambling activities, including casino games, slots and scratch cards.

Who commissioned the research into gambling in Ireland?
The research was conducted by the Economic and Social Research Institute (ESRI) and commissioned by the Gambling Regulatory Authority of Ireland (GRAI).

How many people participated in the ESRI survey?
The research surveyed 1,000 people who had gambled at least once during the previous year. The sample was designed to represent gamblers in Ireland.

How many respondents had gambled online?
Some 77 per cent of respondents said they had gambled online during the previous year, compared with 59 per cent who had gambled in person.

How common are multiple online gambling accounts in Ireland?
The report found that 80 per cent of respondents had at least one online account. Among those account holders, 53 per cent had more than one account. Around one in ten online gamblers had four or more accounts.

What motivates consumers to open additional gambling accounts?
Respondents identified favourable odds, straightforward registration procedures and promotional offers as some of the main reasons for opening additional accounts.

What did the research reveal about gambling advertisements?
One in seven respondents said their most recent online gambling session followed an email, app notification or gambling advertisement. Around one in five reported receiving operator notifications every day.

What impact can online gambling have on everyday activities?
Around one in five online gambling sessions interrupted another activity, including work or family time. The findings highlight how gambling can sometimes compete with ordinary personal and professional commitments.

What is the Gambling Regulatory Authority of Ireland responsible for?
The GRAI is responsible for regulating gambling activities in Ireland, including developing licensing requirements, overseeing operators and introducing consumer protection measures.

Which consumer protection measures are highlighted by the research?
The study highlights effective spending limits, accessible account closure and withdrawal procedures, appropriate advertising standards and self-exclusion arrangements as important areas for regulatory attention.