Croatia gambling reforms and self-exclusion system 2026

Croatia has begun implementing a major reform package aimed at reshaping the governance, supervision, and public health safeguards surrounding gambling activities in the country. The introduction of a national self-exclusion system marks a central component of this reform process, signalling a shift toward stronger consumer protections and closer oversight by state authorities. The rollout of the system represents the first operational phase of a wider effort that government officials say is intended to align the country with established European regulatory standards while promoting a safer and more transparent gambling environment.

Government commitment to reform

The current reform agenda was initially outlined as part of broader policy commitments made by prime minister Andrej Plenković and his party, the Croatian Democratic Union (HDZ). Government statements have consistently emphasized a focus on responsible gambling, public health safeguards, and improved regulatory consistency across both land-based and online gambling sectors.

Officials have described the regulatory updates as necessary to address technological changes in gambling services, variations in consumer behaviour, and the need for more clearly defined obligations for operators. As part of these reforms, several measures relating to advertising, identity verification, tax structures, and industry fees are scheduled for phased introduction throughout 2025 and 2026.

Launch of the Registar Igrača self-exclusion system

A key milestone in the reform process was reached this week with the official launch of the Registar Igrača, a nationwide gambling self-exclusion registry. Croatian authorities have stated that the system is designed to allow individuals to voluntarily restrict their access to gambling products, both online and in physical venues. According to the government, the registry forms part of a public health-oriented strategy aimed at mitigating gambling-related harms.

The Croatian Institute of Public Health (HZJZ) has been tasked with managing the system. Under the new rules, all licensed operators—online and land-based—are required to integrate their platforms and operational systems with the central registry. The deadline for full implementation is January 1, 2026. After that date, operators who fail to properly integrate risk regulatory action by the Ministry of Finance, which will oversee compliance and enforcement.

Government representatives have emphasised that the goal is to create a unified and reliable mechanism through which individuals can restrict their gambling activity across all regulated environments, rather than relying on fragmented operator-specific self-exclusion tools.

New operational obligations for operators

The reforms impose a range of additional responsibilities on operators to strengthen player protection and enhance the accuracy of identity verification processes.

Electronic identity verification

Casinos, betting shops, and gaming arcades will be required to deploy electronic identity verification systems. These systems must allow staff to confirm customer identities, ensure that age restrictions are respected, and check whether any individual attempting to gamble is listed in the Registar Igrača. The obligation applies across all forms of entry and service provision, including the purchase of betting slips, the use of slot machines, and participation in table games.

The new identity verification requirements also mandate system-level coordination with local authorities and the Ministry of Finance. Operators must maintain accurate records of customer checks, and provide relevant data to regulators upon request. According to government officials, these requirements are designed to strengthen accountability and ensure that self-exclusion remains an effective and enforceable tool.

Removal of self-service betting terminals

The reforms also include restrictions on certain forms of gambling hardware. Cafés, bars, and recreational venues will be required to remove all self-service betting terminals, known locally as kladomati. Policymakers have stated that these terminals, which allow unsupervised access to gambling products, pose heightened risks for underage gambling and impulsive play. The removal requirement is aligned with the government’s stated objective of increasing supervision and reducing opportunities for uncontrolled gambling.

Restrictions on advertising and promotional activities

Another significant element of the new regulatory package involves restrictions on gambling advertising. Under the updated rules, broadcast advertising for gambling is prohibited between 6 a.m. and 11 p.m. This measure is intended to limit exposure to gambling promotion among minors and vulnerable groups during peak viewing periods.

In addition to the broadcast restrictions, gambling venues will no longer be allowed to display external advertising, such as promotional signage, branding, or digital displays on the exterior of buildings. These limitations apply to all licensed gambling establishments and are designed to reduce the visibility and immediacy of gambling marketing within public spaces.

Government officials have described these advertising changes as consistent with broader European trends toward limiting the public presence of gambling marketing, particularly in areas frequented by minors.

Financial and tax reforms planned for 2026

The next major phase of the regulatory reforms is expected to take effect in 2026 and involves significant financial changes affecting both operators and players.

Increased licence fees

Land-based casino licence fees will increase from €400,000 to €600,000. Licence fees for online gambling operators will rise from €265,445 to €398,168. Land-based betting shops will also face increases from €132,722 to €200,000. These adjustments represent a substantial upward revision of operator obligations and are intended, according to the government, to reflect modern regulatory needs and ensure stable sources of public revenue.

Adjusted taxation on player winnings

Gambling winnings will be taxed according to a progressive scale, beginning at 10 per cent for winnings up to €1,500 and rising to 30 per cent for winnings over €70,000. The government has projected that these changes may generate an additional €50 million to €70 million per year.

Authorities have indicated that approximately 11 per cent of gambling-related revenue will be designated for addiction prevention and treatment services. Remaining funds will be directed toward education, civil society initiatives, and various social programmes. This allocation model has been presented as a way to ensure that public revenue from gambling directly contributes to mitigating potential social harms.

Government position on the regulatory reforms

The Ministry of Finance has stated that the reforms “represent a new phase of socially responsible regulation. They protect players, reduce exposure to gambling, and bring the sector in line with European standards of accountability”. This position reflects a broader governmental narrative that the new requirements are essential to strengthen consumer protections, reduce harmful behaviours, and create a regulatory framework that matches the expectations of contemporary oversight bodies across Europe.

Officials have also emphasised that the reforms introduce clearer lines of responsibility for operators, encourage transparency, and ensure that regulatory frameworks evolve alongside technological developments in gambling services.

Industry concerns and employment considerations

Despite the government’s assurances, some industry stakeholders have expressed significant concerns about the impact of the reforms. The Croatian Association of Gambling Operators (HUBPS) has warned that the collective effect of increased fees, operational restrictions, the removal of betting terminals, and advertising limitations may create financial and logistical difficulties for many businesses.

According to HUBPS, these changes may place pressure on small and medium-sized operators in particular, potentially resulting in the loss of up to 15,000 jobs. The association has cautioned that such outcomes could affect local economies, especially in regions where gambling venues constitute a notable source of employment.

While the government has acknowledged concerns raised by industry groups, officials have stated that the reforms are necessary to modernise regulatory structures and protect consumers. Authorities have also indicated that they may continue engaging with industry stakeholders to discuss practical implementation issues.

European regulatory considerations

The European Gambling and Amusement Federation (EUROMAT) has submitted an objection to the European Commission regarding the implementation of the reforms. The organisation has argued that Croatia did not notify certain amendments to the Croatian Gambling Act (PZ_42) under the Technical Regulation Information System (TRIS) procedure. According to EUROMAT, some of the amendments may fall under the category of technical regulations as defined by European Union Directive 2015/1535, which typically requires formal notification and review at the European level.

This objection highlights the potential for procedural discussions between Croatian authorities and EU institutions. At this stage, no formal announcements have been made regarding any required changes, reviews, or potential delays linked to the objection. However, observers have noted that procedural matters of this type can influence the pace or structure of regulatory implementation.

Outlook for the Croatian gambling sector

The introduction of the national self-exclusion registry, combined with new identity verification requirements, advertising restrictions, and increased financial obligations, marks a considerable shift in the operational landscape for gambling in Croatia. While the full impact of the reforms will only become clear once all elements are in force, it is evident that the country is moving toward a stricter regulatory framework focused on public health, accountability, and consumer protection.

Operators will need to invest in new technologies, compliance systems, and staff training to meet the updated requirements. Meanwhile, ongoing dialogue between industry stakeholders, the government, and European institutions may shape the practical details of implementation.

For players, the reforms are expected to create clearer safeguards, greater oversight, and more consistent mechanisms for accessing support. For the government, the changes are intended to ensure that the gambling sector remains well-regulated, socially responsible, and aligned with broader European standards.

Conclusion

Croatia’s introduction of a national self-exclusion system, combined with its wider package of regulatory reforms, represents one of the most substantial updates to the country’s gambling framework in recent years. The changes signal a shift toward stronger public health protections, clearer regulatory obligations, and closer supervision of both land-based and online operators. While industry stakeholders have raised concerns regarding operational costs, employment implications, and procedural matters at the European level, the government maintains that the reforms are necessary to promote responsible gambling and ensure alignment with contemporary European standards.

The coming years will reveal how effectively these measures balance consumer protection with the continued operation of a regulated gambling sector. As operators adjust to the requirements—including identity verification, advertising restrictions, and increased taxation—Croatia aims to establish a more accountable and transparent environment for gambling activities. The long-term outcomes will depend on consistent enforcement, cooperation between authorities and industry entities, and ongoing evaluation of the reforms’ impact on public health, economic stability, and the broader regulatory landscape.

FAQs

What is the Registar Igrača system?
It is Croatia’s new national self-exclusion registry that allows individuals to voluntarily block access to gambling services across licensed operators.

Who manages the self-exclusion registry?
The Croatian Institute of Public Health oversees the system and ensures that operators comply with all integration requirements.

When do operators need to integrate with the registry?
All gambling operators must connect their systems to the Registar Igrača by January 1, 2026 under the new regulatory framework.

What happens if an operator fails to comply?
The Ministry of Finance will monitor compliance and may take regulatory action against operators who fail to integrate with the system.

Why are self-service betting terminals being removed?
Authorities consider unsupervised gambling terminals to pose increased risks for underage and impulsive gambling, prompting their removal.

How will identity verification change under the reforms?
Casinos and betting venues must use electronic systems to verify customer identities and check them against the self-exclusion registry.

What are the new rules on gambling advertising?
Broadcast advertising for gambling is banned between 6 a.m. and 11 p.m., and gambling venues cannot use external promotional signage.

How will licence fees change in 2026?
Land-based and online operators will face significant increases in annual licence fees as part of the updated regulatory structure.

Will gambling winnings be taxed differently?
Yes, winnings will be taxed on a progressive scale ranging from 10 per cent to 30 per cent, depending on the amount won.

What concerns have industry groups raised?
Industry representatives have expressed concerns about potential job losses and financial pressures resulting from increased regulatory obligations.