Polish Gambling Market Losing Billions Due to Grey Zone and Ineffective Regulation
At the 17th European Economic Congress in Katowice, representatives of Poland’s gambling industry acknowledged that regulatory shortcomings have led to the flourishing of the black market in the country.
€50 Billion Lost Offshore
According to data presented during a panel discussion organized by the Graj Legalnie association and the state lottery Totalizator Sportowy, since 2017 the Polish gambling market has lost around €50 billion to offshore operators. As a result, Poland’s budget has missed out on approximately €1.3 billion in taxes.
These figures illustrate the failure of a reform aimed at limiting the shadow sector and strengthening oversight. However, according to experts, the consequences have been the opposite of what was intended.
Government Measures Aren’t Working
The Ministry of Finance maintains a blacklist of nearly 50,000 domains linked to illegal casinos. But blocking these sites has proven ineffective.
According to Zdzisław Kostrubała, president of Graj Legalnie: “We are not against regulation — we are against regulation that doesn’t work.” He also called the current monopoly model an anachronism.
Former Totalizator Sportowy CEO Wojciech Szpil noted that the internet evolves faster than the state can react: “We’re talking about the internet — it’s in our pocket.”
Players Don’t Know What’s Legal
Most Polish users are unaware that only one online casino — Total Casino — is legal in the country. Many players, even when trying to play legally, end up on illegal sites.
Piotr Palutkiewicz of the Warsaw Enterprise Institute stated: “The law can’t keep up with reality.” He added that the legislation creates confusion that allows the grey market to thrive.
Comparison of Legal and Illegal Sectors (2024)
| Indicator | Legal Market | Illegal Market |
|---|---|---|
| Revenue | €14.6 billion | €14 billion |
| Market Share (5-Year Forecast) | 4–5% | Rest of the market |
Why the Monopoly Is Ineffective
Olgierd Cieślik, who headed Totalizator Sportowy from 2017 to 2024 and was instrumental in launching Total Casino, emphasized that one operator is not enough to meet the demands of modern users.
Users are used to multiple platforms in other areas — whether video, music, or social media — and see no reason to limit themselves in gaming.
What Is Poland Lacking?
- A flexible licensed model, as seen in other EU countries
- Transparent regulation and real control over the illegal sector
- Public awareness about which platforms are permitted
Conclusion: The Law Exists, But Control Doesn’t
Despite the 2017 reform and eight years of fighting illegal operators, the Polish system remains in a grey zone.
The law exists, but it lacks real enforcement mechanisms and fails to account for digital realities.
While other European countries are introducing multi-platform licensing, Poland is losing billions and forfeiting control over the market.