An investigation by the Guardian newspaper revealed that slot machine profits are being syphoned to billionaire-owned firms and offshore funds. The paper’s findings have sparked outrage from all corners, including high-profile politicians such as Greater Manchester Mayor Andy Burnham.

Slot Machine AGCs Target Most Vulnerable in the UK

The report showed that over a third of the UK’s 1,452 adult gaming centers (AGCs) were disproportionately located in the poorest 10% of neighborhoods. Furthermore, over half of the UK’s AGCs were situated in the bottom 20% of the poorest communities, with coastal towns, already struggling economically, particularly affected.

Major slot machine operators such as Admiral, owned by Austrian billionaire Johann Graf’s Novomatic, and Merkur, affiliated with Germany’s Gauselmann family, have rapidly expanded into these vulnerable areas. Both companies operate hundreds of gambling venues across the country, many of which are open 24 hours a day.

These locations offer B3 slot machines, which feature £2 max spins and jackpots up to £500. Earlier this year, the government’s Department for Culture, Media and Sport (DCMS) announced its decision to review the “80/20 rule” relating to machines has been delayed indefinitely and will not happen in 2025. 

According to recent government-published figures, these gaming hubs earned over £530 million in the last year alone. Academics and public health experts have highlighted how companies are profiting from vulnerable UK citizens before redistributing their earnings offshore, diminishing the economic benefits derived from the AGC sector.

Skewed AGC Distribution and Offshore Financials

City Gaming, another prominent operator who runs the Game Nation chain, is funded as part of a Cayman Islands loan proviso linked to a Morgan Stanley-managed private equity fund. The report revealed that the firm paid over £12.6 million in interest alone to the offshore lender without paying any UK corporation tax.

Meanwhile, in some wealthier areas of the country, AGCs are non-existent. Fourteen local councils do not have any AGCs in their boroughs – eight of which qualify in the country’s top 20% of most affluent areas.

As a result, public figures, including Andy Burnham, have called for stronger local licensing powers to reduce AGC numbers on UK high streets. He has also called for the need to reclassify the legal statuses of AGC, particularly as they appear to target “the most vulnerable in our communities.”

Calls to Protect Communities and Close Offshore Tax Loopholes

In addition to the perceived targeting of at-risk communities, concerns over the proliferation of problematic gambling are also rising. The most vocal of which has been Professor Henrietta Bowden-Jones, NHS England’s National Adviser on Gambling-Related Harm.

Bowden-Jones warned that 24/7 slot machine access is designed to keep people playing “against their own interests” before adding that the NHS is seeing record demand at its 15 designated gambling clinics. 

Labour MP Beccy Cooper echoed these concerns, accusing AGC operators of “lining their pockets at the expense of our poorest communities.”

Countering the issues raised in the report, Bacta, the trade body representing AGC operators, reiterated that the industry employs over 9,000 workers and contributes over £200 million a year in UK taxes.

With more than 100 new AGC venues opening since 2020—many of which are in the UK’s poorest communities—critics argue the government needs to tighten its grip on the sector and start clawing back taxable proceeds currently being diverted offshore.

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A vocal point for this year’s initiative is ensuring that players are aware of the toolbox and the assets that are available to them, to benefit from a safer playing experience. 

Organised by the BGC, BACTA and the Bingo Association, Safer Gambling Week is now in its eighth year and will once again see a range of safer gambling messages, both online and in land-based venues, in a bid to grow the nationwide conversation about betting responsibly.

Andrew Rhodes, Chief Executive of the Gambling Commission, said: “Ensuring safety should always be central to every aspect of gambling.

“However, Safer Gambling Week offers a valuable chance to emphasise this priority even further.

“It also enables operators to exchange best practices, helping to make gambling in Britain among the safest experiences worldwide.”

Grainne Hurst, Chief Executive of the BGC, added: “Safer Gambling Week is about showcasing safer gambling tools that exist in the regulated industry all year round to ensure that the millions of people who enjoy a regular flutter, continue to do so in a safe and responsible environment.

“Previous years have shown that this campaign leads to increased use of those popular safer gambling tools – like time-outs and deposit limits.”

Safer Gambling Week and ensuring social responsibility standards are met are also vital for affiliates, with imperative steps being essential to ensure that traffic is safe.  

It brings further into focus the essential steps that affiliates take to ensure they target the right audiences with their content and bring in traffic of value to operator partners. 

Andrew Lee, COO of QiH Group, stated: “As a company focused on generating high-quality, responsible gambling traffic to our operator partner sites, safer gambling is a daily consideration for QiH Group. We recognise Safer Gambling Week as a valuable opportunity to stay engaged with the broader industry conversations and to hear from the community on responsible gambling.

“As affiliates are often an initial touchpoint for customers, our priority is maintaining a safe, compliant environment that benefits our partners and, ultimately, their customers. 

“We believe in supporting a balanced approach where gambling remains what it should be: safe, enjoyable entertainment.”

Pivotal to the BGC’s new standards was ensuring that land-based casinos are prevalent with safer gambling messaging.

New guidance for the casino sector features a host of strategies, including ensuring that slot machine safer gambling messaging is boosted – “outside of game play, at least 20% of slot machine top screen imagery to be dedicated to safer gambling messaging, where game and machine functionality permits”. 

As well as this, one strategy bids for safer gambling messaging to appear on slot machine receipts (referred to as TITO), promoting safer gambling and advice on staying in control, including the National Helpline phone number. 

These measures will apply across the diverse membership of the BGC, including land-based operators like casinos, which are a pillar of the hospitality and tourism sector, bookmakers on hard-pressed high streets and online gaming operators.

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Johnson joins Bacta with an MSc in Policy and Politics from Birkbeck University and will report directly to George McGregor, Executive Director of Government Relations at Bacta. 

McGregor stated on his new role: “Following July’s General Election not only do we have a new Government but over 50% of all elected MPs are new to the House of Commons.

“We operate in a highly regulated sector and it is imperative that we have a progressive dialogue with all political stakeholders and establish effective representation at the heart of government.

“Declan, whose background includes terms working in Political Communications and mainstream Public Relations will be part of the team ensuring that Bacta’s voice is heard in all of the key debates impacting developments at the seaside and on the high street.

“He will be helping Bacta to achieve its political objectives which include the earliest possible implementation of the reforms recommended in the White Paper, a review of maximum stake and prize levels and the introduction of modern payment methods on low-stake low prize gambling entertainment machines.”

The UK is in the midst of regulatory change when it comes to the land based gambling sector, prior to the recent General Election the group urged members to strengthen engagement with their local Parliamentary Candidates in order to ensure they “finish the job of modernising the country’s gambling regulations”.

Jeremy Godden, Managing Director of the Godden Gaming Organisation emphasised at the time: “We need to ensure that all Prospective Parliamentary Candidates understand why the changes proposed in the white paper are crucial to the long term sustainability of the UK’s family entertainment centres and adult gaming centres.

“We want amusement arcades to be top of the political agenda given their importance within the tourism offering at our seaside resorts.”

Providing broader context to the issues he will be presenting to his prospective Labour Party MP, Polly Billington, he said: “My core message is that we are in a ‘cost of doing business crisis’ and we need to finish the job of the white paper.

“I cannot stress how important the next three weeks are: we must take the opportunity to lobby candidates before they are elected to Parliament in order to ensure our sector is firmly on the political agenda.”

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The Observer detailed that in excess of 300 slot machine centres have taken their place on British high streets, operating 24-hours a day. 

It comes amidst backlash over the building of a new Merkur slot centre in South London, where an open letter was published with more than 60 objections from residents to the plans. 

Concerns have called for increasing power from officials to strengthen their governance over the centres in order to pause the expansion of the venues, specifically deepening the powers of local council when it comes to building new gaming centres.

Bacta President, John Bollom, moved to defend venues in response to the criticisms though, as he underpinned the strong regulatory framework that the sector operates under.

He also emphasised to the Observer that “strict age checks are a key part of the day-to-day running of the businesses. They are a valued part of the high street and an essential component of the night-time economy.

“A small minority of players can have problems, and we are committed to ensuring the highest possible standards of social responsibility and that help is offered to players if needed.”

Sector awaiting its regulatory fate 

The sector is somewhat awaiting its fate in terms of regulatory changes, prior to the calling of the election the DCMS had published new regulations in response to a consultation regarding measures relating to the land-based gambling sector from the gambling white paper.

Following analysis of the evidence submitted, the DCMS revealed that it had plans to increase the number of gaming machines allowed at certain land-based casinos to 80 and more than 20 for smaller casinos; allow a 2:1 ratio of Category B to Category C and D gaming machines in arcades and bingo halls; allow direct debit card payments on gaming machines; introduce an age limit of 18 and over for the use of ‘cash-out’ Category D slot-style gaming machines; and increase the maximum chargeable premises licence fees.

For machines in arcades and bingo halls, DCMS had stated it would allow a “2:1 ratio of Category B to Category C and D gaming machines” to be implemented on a device-type basis. 

This means “two Category B gaming machines on a cabinet device type can be made available to a minimum of one Category C or D gaming machine on a cabinet device type” and the same applies to in-fills and tablets.

Also bringing the centres more in line with the modern age, there were updates regarding cashless payments on gaming machines. 

The DCMS stated it will “allow direct debit card payments to be made on gaming machines, subject to the player protection measures”, including account verification for each transaction and a £100 transaction limit.

Yet the implementation of the changes remains to be cemented amidst a governmental change off the back of the election. 

Bacta has, however, urged its membership to ensure communication is strong with local governance in order to ensure the sector can continue off the back of any new regulations. 

The group also recently undertook a mapping exercise, which revealed that 325 of the 650 constituencies have at least one Bacta member after the election.

Executive Director George McGregor stated: “To have Bacta representation in 325 constituencies is a major opportunity to present the industry’s case from the perspective of a constituent, which is a powerful way to create a dialogue and to influence thinking.“The political complexion of the breakdown will enable us to fine tune our arguments in relation to the reforms required to create a level playing field and in the process enable Bacta members to create employment opportunities, support the tourism agenda and to continue to invest in local economies both on the high street and at the coast.”

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The trade body revealed that its initiative began as soon as the outcome of the Election was confirmed. Key to the plans and securing a strong future for growth of the sector was systematically mapping out members’ venues against their constituency MPs. 

Furthermore, the deep-dive into the political terrain of the UK will also include a sectoral perspective identifying those MPs who have been appointed to the relevant Select Committees.

Expanding on the initiative Bacta Executive Director George McGregor stated: “This is the first occasion in the two decades that I have worked with Bacta that we have systematically mapped MPs with Members. We have used the general election outcome to create a geopolitical footprint for the industry.

“It will be the central nervous system guiding our political engagement and is a much more efficient way of putting Bacta members in front of their constituency MPs in order to present the case for the industry, in particular the importance of getting the reforms recommended in the White Paper over the line.”

Reflecting on the new Labour Government, he confirmed: “Our position is one of partnership and collaboration. We believe that the industry is ideally placed to support the Government’s economic growth objectives both on the high street and at the coast as part of a broader tourism strategy. We are preparing for a relentless 12-months with political engagement at the very top of Bacta’s agenda.”

Bacta’s moves come alongside the appointment of a new cabinet to oversee the governance of the sector. The changes saw Lisa Nandy on becoming the new Secretary of State for Culture, Media and Sport, and pledged to work with her ministerial team, to grow the economy and drive up standards on safer gambling.

She is joined at DCMS by Stephanie Peacock MP, who has been appointed Parliamentary Under-Secretary of State at DCMS.
These appointments were also welcomed by the Betting and Gaming Council, as it looks to work closely with the cabinet to ensure a safe and thriving gambling sector.

Peacock has consistently been a firm supporter of Safer Gambling Week, having attended the BGC AGM this year where she gave a speech, and has also taken part in the BGC’s Grand National Charity Bet campaign, raising vital funds for a host of UK charities.

At the BGC’s AGM in February, Stephanie said: “Labour recognises that almost half of adults participate in some form of gambling, with the majority doing so safely and in moderation.

“From bingo to the races, many forms of gambling are rightly considered part of our British cultural tradition.

“Further to this, I know the success of the sector is vital for the economy more broadly, whether that’s betting shops, casinos, online betting and gaming or the companies that develop games.

“BGC members support over 110,000 jobs, generate billions in both GVA and taxes, and contribute to the success of many of our beloved sports through sponsorship and media rights deals.”

The BGC also underlined that it remains committed to delivering the evidence based, proportionate proposals contained in the White Paper, seeking to elevate standards while putting businesses on the right regulatory footing to drive economic growth.
Betting and Gaming Council Chair, Michael Dugher, said: “On behalf of our members, the 110,000 people whose jobs rely on the regulated betting and gaming industry, and the 22.5 million people who enjoy a bet each month, I am delighted to welcome Lisa Nandy to her new position as Secretary of State for Culture, Media and Sport.

“She has hit the ground running and, on a personal note, can I welcome her particular support to ensure DCMS supports working class communities across the country. Betting has long been a part of working class culture for many people – from bingo halls to betting shops – and our mission to provide critical support for traditionally working class sports like rugby league, darts, snooker and lower league football is well known.

“I would also like to congratulate Steph Peacock on her new role as Minister for Sport, Gambling and Civil Society, who joins Lisa Nandy MP in DCMS.

“Steph already has a deep knowledge of our sector and sport, having been Shadow Minister for Digital, Culture, Media and Sport, for over a year, and I look forward to continuing working together.

“Both Lisa and Steph bring a wealth of experience to their new roles, backed by Labour’s welcome commitment to work with the industry. I would like to assure them both, they will have the full support and backing of this sector as we work together to drive economic growth and continue raising standards on safer betting and gaming.

“From high streets to hospitality, from tourism to tech, our members generate £4.2bn in taxes for the Treasury and contribute £7.1bn to the wider economy. This is a sector ready to contribute to growth, jobs and investment in the economy.

“We are investing in virtually every constituency in the land, particularly in sport, where our members are providing vital financial backing, and we look forward to working with the new Ministers at DCMS to drive economic growth and investment.

“BGC members are currently in the midst of the biggest regulatory changes in a generation following the publication of the White Paper, which Labour backed, and much of this work carries on now the election has been completed.

“Work on the White Paper is backed by the industry’s own significant efforts to drive world-class standards and protections for the vulnerable, which has transformed the sector in recent years and stands in marked contrast to the dangers posed by the unsafe, unregulated black market online.”

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It’s a little over a month ago that a rain-soaked Rishi Sunak announced the snap-election, disrupting the implementation of the gambling white paper and new plans for the land-based sector. 

Before Parliament was dissolved and the election campaign got underway, the Department for Culture, Media and Sport had published new regulations in response to a consultation regarding measures relating to the land-based gambling sector from the gambling white paper.

They provided a bright outlook for the land-based gaming sector, enabling certain casinos to increase the number of gaming machines they offer to 80 and for smaller casinos to more than 20; allowing a 2:1 ratio of Category B to Category C and D gaming machines in arcades and bingo halls, which after much political back and forth was seen as a significant victory for the industry. 

However, these plans were thrown into doubt as the election was called, and a lack of focus on plans for the UK gambling sector within the main parties’ manifestos makes it hard to believe that this legislation will be a priority for any incoming government. 

It caused BACTA to urge members to engage with candidates from the opposition Labour Party – which has a big poll lead – to ensure that the sector isn’t forgotten and progress is pushed to the forefront for any party that comes into government. 

Bacta President John Bollom responded when the election was called: “A snap General Election was always the biggest risk to getting the Gambling White Paper reforms passed into law.

“I am asking every Bacta member to contact their parliamentary candidates – especially the Labour Party candidates – to encourage them to support the land-based gambling reforms.

“We will be issuing advice to members on how to do this in the coming days. 

“It is imperative, if there is a change in Government, that the Labour Party finishes the job and supports modernisation of our sector to support both the High Street and seaside towns. 

“The reforms are so vital for our sector. I like to think they may have been delayed, not derailed. Our campaign continues.”

Nonetheless, should polls be correct and a Labour government come into power on Thursday evening, there has been optimism that although it won’t be at the forefront of focus, wider plans for the implementation of white paper changes will continue to progress unscathed. 

It is uncertain what will follow whoever gets the keys to number 10 on Friday, yet a cabinet reshuffle is almost inevitable and the leading mind that looks over the gambling industry’s framework will change. 

As adaptations reign across the cabinet and changes ring around, UK gambling will hope the government settles on the long-awaited stability that had been found prior to the snap-election and allows for the previously touted laws to be implemented and the trial of white paper changes to continue as they were. 

One key consideration,  highlighted by Bacta, is that the industry needs to take the ascendancy when it comes to communication with governmental officials and put forward its case for change. 

Furthermore, the new government will do well to place a close eye on the German market, where a tightening of restrictions has seen worrying numbers come from black market engagement. 

The latest numbers from Germany’s gambling authority, Gemeinsamen Glücksspielbehörde der Länder, revealed that illegal gambling revenue was equal to up to four per cent of the country’s total GGR in 2023. 

Publishing figures behind the country’s gambling ecosystem for the previous year, the GGL confirmed that illegal gambling revenue – defined as player losses in the report – stood between €400m and €600m.

Signalling that black market gambling is still rife in the nation, these figures are equal to around four per cent of the total market’s GGR, which came in at €13.7bn for the year. 

Pressure for legitimate German operators elevated from tough frameworks as the online slot limit is just €1 a spin and the overall deposit limit is €1,000. As affordability checks were being speculated in the UK market, many cited Germany as an example of why their impact simply shouldn’t be taken lightly. 

And, should the temptation arise for a new government to intensify player affordability checks, they will be advised to look at markets that have taken this route and the results they have had.

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The body also underlined that it has a plan of action for all potential outcomes of the election, hoping for efficient progress after the plans were halted by the calling of the snap-election. 

Bacta also lauded the efforts of its members to urge them to lobby their Prospective Parliamentary Candidates (PPCs) to support the land-based gambling reforms and ‘finish the job’ in the next Parliament.

Looking ahead, Bacta Executive Director George McGregor said: “I would like to start by congratulating Bacta members for contacting their PPCs and ensuring they understand why the changes proposed in the White Paper are pivotal to the long-term sustainability of the UK’s family entertainment and adult gaming centres alongside the entire supply chain.

“With the gambling review in limbo we built and launched a dedicated general election website which simplified the process to invite parliamentary candidates to venues.

“We have action plans in place for all scenarios and are poised to hit the ground running post the election with a compelling case of evidence-based arguments to support the changes that are required for the land-based industry to be competitive and to continue contributing to UK plc.”

He added: “It’s vital that Bacta members open a dialogue with their elected representatives as soon as the General Election results are known. The make-up of the House of Commons will be transformed and there’s no better time to start building relationships with the 2024 intake of MPs.”

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Jeremy Godden, Managing Director of the Godden Gaming Organisation, emphasised his belief that the political campaign needs to shift up a gear with the election less than three weeks away.

He stated: “We need to ensure that all Prospective Parliamentary Candidates understand why the changes proposed in the white paper are crucial to the long term sustainability of the UK’s family entertainment centres and adult gaming centres.

“We want amusement arcades to be top of the political agenda given their importance within the tourism offering at our seaside resorts.”

Providing broader context to the issues he will be presenting to his prospective Labour Party MP, Polly Billington he said: “My core message is that we are in a ‘cost of doing business crisis’ and we need to finish the job of the white paper.

“I cannot stress how important the next three weeks are: we must take the opportunity to lobby candidates before they are elected to Parliament in order to ensure our sector is firmly on the political agenda.”

The calls come after last week’s launching of the manifestos from the main parties left the industry with little clarity in terms of the plans for the igaming sector. 

Predicted to replace the Conservatives with a landslide victory come July 4, Labour leader Keir Starmer launched the Labour Party Manifesto 2024 on Thursday, June 13, with a focus on wealth generation, green energy and cutting NHS waiting times. 

Under the ‘Build an NHS fit for the future’ section, the Manifesto read: “Labour is committed to reducing gambling-related harm. Recognising the evolution of the gambling landscape since 2005, Labour will reform gambling regulation, strengthening protections. We will continue to work with the industry on how to ensure responsible gambling.”

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The DCMS published the new regulations in response to a consultation regarding measures relating to the land-based gambling sector from the April 2023 gambling white paper.

After reviewing the consultation responses, the DCMS intends to increase the number of gaming machines allowed at certain land-based casinos to 80 and more than 20 for smaller casinos; allow a 2:1 ratio of Category B to Category C and D gaming machines in arcades and bingo halls; allow direct debit card payments on gaming machines; introduce an age limit of 18 and over for the use of ‘cash-out’ Category D slot-style gaming machines; and increase the maximum chargeable premises licence fees.

The next step for these regulations will be for them to be presented before Parliament.

BGC – ‘much needed reforms’

In response to the DCMS’ proposals, BGC CEO Michael Dugher said that the council welcomes the changes, stating that cashless payments, additional gaming machines and sports betting inside casinos will help the industry meet the needs of customers.

Dugher noted: “Casinos are a vital pillar of the UK’s leisure, hospitality and tourism sector and we welcome the Government’s consultation response which is positive progress on the modest, long-overdue but mission critical modernisation reforms needed for the land-based casino sector to compete and thrive.

“Casinos currently employ more than 10,000 people, contribute £300m annually in tax and generate an estimated £800m a year to the UK economy.

“Much needed reforms on cashless payments, gaming machine allocations and allowing all casinos to offer sports betting will strengthen the sector to better meet the needs and expectations of their customers.”

Rank – ‘modernisations cannot come a moment too soon’

Rank Group also expressed its approval of the proposals, with CEO John O’Reilly noting that the modernisations will help its venues.

He stated: “Today’s Government response to the land-based consultation is good news for Rank. Providing the legislation is on the statute books by recess in late July, we are looking forward to improving the customer proposition in our venues with a roadmap of investments and improvements in the months and years that follow. 

“The legislative modernisations cannot come a moment too soon, so we are pleased with the progress contained in today’s announcement.”

Dugher has also requested for the government to provide guidance on when these new regulations will come into effect for the land-based gambling industry.

The BGC CEO said: “While we welcome these proposals, attention must now shift to the timeline for implementing policy changes and we urge the Government to urgently set out a clear timeline for progressing the relevant legislation to make them reality for our members.

“Too many casinos have sadly closed in recent years as successive administrations failed to deliver the changes we needed to protect jobs and growth. The BGC and our fantastic casino members have campaigned for these new measures for years to allow businesses to modernise, innovate and grow, and we strongly welcome the Government’s approach to ensure casinos are better placed to make that happen.”

Bacta – cashless play by 2025

Bacta also welcomed the DCMS proposals, with President John Bollom noting that the organisation will work with the UK Gambling Commission to introduce cashless play for next year.

Bollom stated: “This is a good day. The Minister is to be congratulated for creating the conditions which will allow the land-based sector to go forward. The progress achieved is a testament to the hard work of Bacta and our members in making the case for reform. 

“I would like to thank all the Bacta members who have helped in this campaign which has taken four years. 

“We hope that Parliament will give a smooth passage to these proposals, so they are passed into law before the General Election. Bacta will actively engage with Gambling Commission officials to ensure the introduction of cashless play in 2025.”

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The event will be attended by Bacta’s National President John Bollom, Vice President Joseph Cullis and Executive Director George McGregor.

It forms a key element of the trade organisation’s restructuring programme and follows the recent National Council event held in Leeds to discuss some of the key issues affecting member businesses.

Kevin Temple, Novomatic Gaming UK’s Director of Sales, said: “Absolutely everyone has to feel that their voice is being heard and the new Bacta has already made significant inroads talking with members and listening to the issues which are impacting their businesses.

“Scotland has its own challenges, not least a reduced footfall compared with the rest of Britain, a slower adoption of digital gaming particularly in single site and of course the absence of any rates relief assistance from Government. 

“The opportunity to explain and expand on the issues which are specific to the operation of amusements and low-stake gaming businesses north of the border is an important part of the process by which we can create a truly engaged and active membership.”

Expecting a productive meeting in Scotland, Temple added: “Due to the fact that many of our Scottish members are independent intergenerational businesses and have known each other across decades I think we can look forward to a healthy attendance and a lively debate. 

“There are many issues on the radar including the likely outcome and timetable of the white paper proposals, technical standards, stake and prize levels, cashless, illegal machines, the statutory levy, the role and remit of a Gambling Ombudsman, the implications of the Commission’s new Gambling Survey of Great Britain and the current challenges facing jukebox and music operators in the single site sector.

“Members will also be interested to learn more about how Bacta is preparing for the general election and the likelihood of working with a new government and potentially a new batch of Scottish MPs. 

Temple concluded: “I am certain that Bacta will benefit from receiving a ‘hands-on’ Scottish perspective on the industry and equally confident that the meeting will reinforce the very positive relationship the trade association enjoys with businesses in Scotland.”

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