DGOJ develops mechanism to detect risky gambling behaviour

The Directorate-General for the Regulation of Gambling (DGOJ) in Spain has embarked on a comprehensive initiative to bolster player protection by creating a sophisticated mechanism designed to detect risky gambling behaviour. This strategic move aligns with the requirements of the Royal Decree issued on 14 March 2023, which mandates gambling operators to implement robust protocols and technological tools capable of identifying and managing potentially harmful gambling activities. The overarching aim of this initiative is to safeguard vulnerable players and at-risk groups, reflecting a primary concern enshrined in Spanish gambling legislation and regulatory frameworks. The DGOJ’s project marks a significant step forward in Spain’s ongoing efforts to promote responsible gambling and enhance the safety of its gaming sector.

Legal framework and mandate

This initiative is grounded in the provisions of Royal Decree 176/2023, which was officially enacted on 14 March 2023. This legislation explicitly requires gambling operators to adopt mechanisms and protocols that facilitate the detection of risky behaviours among players. It also tasks the DGOJ with the responsibility to design and implement a comprehensive mechanism within a two-year timeframe following the decree’s enactment. The intended mechanism is designed to provide a uniform categorisation of players at risk, ensuring that identification and intervention are consistent across all licensed gambling operators in Spain.

The legal mandate emphasizes not only the detection of risky behaviours but also the preventive aspect of regulation. By requiring operators to have systems in place, the law aims to reduce gambling-related harm before it escalates. This reflects a broader European trend toward proactive regulatory frameworks that integrate player safety into operational standards for gambling providers.

Objectives of the mechanism

The primary goal of the DGOJ’s proposed mechanism is to identify individuals exhibiting risky gambling behaviours at the earliest possible stage. By analysing a variety of markers and patterns of activity—such as frequency of play, wager amounts, duration of sessions, and behavioural anomalies—the mechanism seeks to flag players who may be susceptible to harm.

This proactive approach is intended to allow operators and regulators to implement timely interventions. These interventions could include personalized notifications, temporary restrictions, or further assessment to prevent escalation into problem gambling. The DGOJ envisions this system as a central tool for responsible gambling, providing actionable insights while ensuring compliance with national regulations and safeguarding player welfare.

Public consultation process

Demonstrating a commitment to transparency and inclusivity, the DGOJ has opened the draft of its mechanism to a public consultation process. This invites both natural and legal persons—ranging from industry stakeholders to independent experts—to submit observations, recommendations, or suggestions. Contributions are encouraged to enhance the effectiveness and fairness of the mechanism.

The consultation period is scheduled to close on 25 September 2025, providing sufficient time for a wide range of stakeholders to provide feedback. This participatory approach reflects the regulator’s intention to create a mechanism that is well-informed, balanced, and responsive to real-world gambling behaviours, thereby strengthening both regulatory oversight and public trust.

Comparative international efforts

Spain’s initiative is part of a growing trend in Europe to adopt advanced mechanisms for detecting risky gambling behaviours. In January 2025, the Dutch Gaming Authority (KSA) released findings identifying five key behavioural factors that may indicate potential gambling-related harm: gambling intensity, loss of control, escalation in gambling activity, actions of operators, and specific game characteristics.

The KSA also observed that average daily spending data were often misleading, since problematic gambling patterns can fluctuate significantly over time. This insight highlights the complexity of detecting risky behaviour and underscores the importance of dynamic, data-driven mechanisms capable of adapting to individual player profiles. Spain’s adoption of such an approach demonstrates a commitment to leveraging international best practices in responsible gambling.

DGOJ’s strategic plan 2026–2030

Creating this risk detection system forms a central part of the DGOJ’s Strategic Plan for 2026–2030. This comprehensive strategy outlines several initiatives aimed at enhancing player protection and regulatory oversight, including:

• Real-time monitoring of player activity to detect early signs of risk.
• Creation of a centralised database for players under 24 years old, enabling targeted safeguards for younger participants.
• Mandatory messaging for at-risk users, providing guidance and resources to prevent escalation.
• Development of a universal system of affordability thresholds and deposit/time limits, ensuring responsible gambling practices across operators.

Collectively, these projects reflect a forward-looking approach to managing gambling-related harm, combining regulatory oversight with technological innovation to create a safer gambling environment.

Technological integration

To implement these initiatives effectively, the DGOJ is investing heavily in advanced technologies. Artificial intelligence (AI) surveillance systems and sophisticated data analytics tools will allow real-time monitoring of player behaviour. These systems are expected to detect suspicious or abnormal activity, flag potential money laundering, and ensure that operators maintain compliance with established regulatory standards.

The DGOJ has also allocated €650,000 in technical support contracts to firms including ALTEN and Connectis. These companies will assist the Online Gambling Inspection Sub-Directorate by providing operational and software support. Their responsibilities include fraud prevention, age verification, certification tracking, and monitoring participation restrictions, all of which are critical to maintaining a secure and accountable gambling ecosystem.

Enforcement and compliance

Compliance with Royal Decree 176/2023 is strictly enforced. Failure to adhere to the obligations stipulated in the decree constitutes a serious infringement, carrying penalties ranging from €100,000 to €1,000,000. This stringent penalty structure underscores the regulator’s commitment to ensuring that all licensed operators maintain high standards of player protection and regulatory integrity.

Such enforcement mechanisms are not only designed to uphold legal obligations but also to incentivize operators to integrate responsible gambling practices into their daily operations, thereby reducing risks for players and maintaining public confidence in Spain’s gambling sector.

Conclusion

The DGOJ’s initiative to develop a mechanism for detecting risky gambling behaviour represents a strategic and proactive step toward safer gambling in Spain. By combining legal frameworks, technological innovation, and a participatory public consultation process, the DGOJ aims to build a robust system that identifies at-risk players, enables timely interventions, and promotes responsible gambling practices.

As the consultation period progresses, stakeholders are encouraged to engage actively, ensuring that the final mechanism is effective, inclusive, and capable of addressing the complexities associated with gambling-related harm. This initiative exemplifies Spain’s commitment to fostering a safer, more transparent, and well-regulated gambling environment for all participants.

FAQs

What is the role of the DGOJ in Spain?
The DGOJ regulates and supervises gambling activities in Spain, ensuring compliance with laws and safeguarding player welfare.

What is the purpose of the DGOJ’s new mechanism?
The mechanism aims to detect risky gambling behaviours early, allowing for interventions to protect vulnerable players.

How does the DGOJ identify risky gambling behaviours?
By analysing markers such as frequency of play, wager amounts, session duration, and unusual patterns in gambling activity.

What is Royal Decree 176/2023?
It is the legal mandate requiring gambling operators to adopt tools and protocols for detecting risky gambling behaviours.

Who can participate in the public consultation?
Both natural and legal persons, including industry experts and stakeholders, can provide observations and suggestions.

What is the deadline for public consultation contributions?
Contributions must be submitted by 25 September 2025.

How is Spain’s initiative different from other countries?
Spain’s approach integrates real-time AI monitoring, a centralised database, and standardised intervention mechanisms across operators.

What penalties exist for non-compliance with the decree?
Violations are considered serious infringements, with fines ranging from €100,000 to €1,000,000.

How does technology support the DGOJ’s goals?
AI and data analytics tools allow real-time monitoring, fraud detection, and enforcement of compliance standards.

What are the key objectives of the Strategic Plan 2026–2030?
The plan focuses on enhancing player protection, monitoring, affordability controls, messaging for at-risk users, and overall regulatory oversight.