Ukraine Launches National Gambling Addiction Strategy Amid War Challenges

On August 26, 2026, the Ukrainian government issued Order No. 855-r, establishing a comprehensive framework to address the rising tide of gambling addiction within the country. This strategy marks the first time Kyiv has recognized gambling disorders not only as a public health issue but as a significant national security risk. The prolonged conflict has significantly increased vulnerability to harmful coping mechanisms among the population. Specifically, the military, veterans, and socioeconomically disadvantaged groups are identified as being at high risk due to the psychological strain of the ongoing war.

The urgency of the situation is reflected in recent findings, which show that 75 percent of respondents consider gambling a major challenge facing Ukrainian society today. Previous efforts to manage the sector were often fragmented and insufficient. The new approach brings together approximately 40 public agencies, including the Ministry of Health, security services, the Ministry of Education, and the gambling regulator PlayCity. The objective is to provide a unified response to mitigate social and economic harms by 2035.

Numbers and facts

The scale of the illegal market in Ukraine remains a daunting challenge for regulators. As of January 1, 2026, the regulated market consisted of 34 licensed operators. However, the shadow economy is vast. Between June and December 2025, the regulator PlayCity detected 2,844 unlicensed gambling websites. This means that for every licensed operator, there are roughly 113 illegal platforms competing for players.

Furthermore, 76 unlicensed land-based venues were identified and reported to the State Bureau for Economic Security. Independent studies cited in the strategy estimate that between 39 and 53 percent of all gambling activity occurs in the informal, illegal sector. Despite this, a study by the Ministry of Digital Transformation found that 86 percent of 2,676 respondents prefer licensed online casinos. Approximately 78 percent stated they have no intention of switching to illegal sites. Those who do use unlicensed platforms often cite anonymity (17 percent) or the lack of restrictions and limits (16 percent) as their primary reasons.

Background

The strategy outlines five key strategic goals, including the promotion of healthy lifestyles, the expansion of early detection screenings in health services, and tailored rehabilitation programs for veterans. Starting in 2028, the Ministry of Digital Transformation will manage annual progress reports to track the strategy's impact. A notable technical measure already in place is an automated mechanism designed to block military personnel from accessing online gambling platforms.

"The strategy will seek to foster responsible play, while also suppressing the illegal market via various measures." - Excerpt from Government Order No. 855-r

Clinical data currently shows a gap between diagnosed cases and the estimated scale of the problem. Only 308 patients have been formally diagnosed with pathological gambling under ICD-10 F63.0, and fewer than 100 people receive treatment annually through national medical programs. The government aims to bridge this gap through nationwide awareness campaigns and by integrating gambling risk education into school curricula.

Why it matters for German players

The situation in Ukraine highlights the necessity of a strictly regulated market, similar to what Germany achieved with the Interstate Treaty on Gambling (GlüStV 2021). While the lack of limits on illegal sites is a driver for the shadow market in Ukraine, Germany's LUGAS system provides effective oversight. Players in Germany are subject to a cross-provider deposit limit of 1,000 euros per month and a 1-euro stake limit per spin on virtual slots. These measures are designed to prevent debt and addiction. To stay safe, German players should only use providers listed on the official whitelist of the Joint Gambling Authority of the States (GGL). Unlike the Ukrainian black market, GGL licensing ensures legal certainty and guaranteed player protection standards.

What it means for GGL-licensed casinos

GGL-licensed providers in Germany can learn from the Ukrainian crisis that prevention must start with marketing and strict access controls. The Ukrainian strategy's focus on blocking illegal advertising mirrors the GGL's ongoing priorities. German licensees must continue to meet rigorous requirements for age verification and social protection concepts. The Ukraine case illustrates that state intervention to block the IP addresses of illegal providers is a necessary tool to support the legal market. The GGL employs similar net-blocking mechanisms to keep players away from unregulated MGA or Curacao sites, thereby fulfilling its channeling mandate.