Learn about the UAE’s commercial gaming regulator, its key individuals, history, and future developments.
What is the GCGRA?
The General Commercial Gaming Regulatory Authority (GCGRA) regulates commercial gaming in the United Arab Emirates (UAE). It is exclusively responsible for licensing and supervising all commercial gaming activities in the country.
The GCGRA is heaquartered at Abu Dhabi Global Market on Al Maryah Island in Abu Dhabi.
The GCGRA team
The GCGRA senior leadership team includes preeminent business figures in the international gambling industry as well as distinguished real estate and gambling lawyers:
- Kevin P. Mullally (CEO): Former Senior Vice-President of Government Relations and General Counsel for Gaming Laboratories International and Executive Director of the Missouri Gaming Commission.
- Jim Murren (Chairman of the Board): Former Chairman and CEO of MGM Resorts International, which operates casino resorts across the USA and China, and former Chairman of the American Gaming Association.
- Chris O'Donnell (Vice Chairman): Former Head of Real Estate at Dubai-based conglomerate Al-Futtaim Group and former Director at CityCenter Holdings, a Las Vegas venture comprising Aria Resort and Casino and Vdara Hotel and Spa.
- Nicholas Casiello, Jr (Board Member): Eminent gaming lawyer who served almost two decades as head of Fox Rothschild LLP’s top-ranked gaming practice. Now a Compliance Committee member at electronic table games manufacturer Interblock Gaming.
- William W. Grounds (Board Member): Former President and COO of Dubai owned Infinity World Development Corp and former MGM Resorts International board member. He currently serves on the board of PointsBet Holdings, operator of major Australian online gaming platform, PointsBet.
- John Kelly (Board Member): Lawyer and recognized expert in reputation and brand protection with over 30 years’ experience. He has represented A-List clients across entertainment, music, and sport, as well as ultra-high net worth and corporate clients.
- Giovanni Lega (Board Member): Lawyer with over 30 years’ experience managing real estate and gaming transactions, managing partner of Italian full-service corporate law firm, LCA Studio Legale.
- Mark A. Lipparelli (Board Member): Current CEO of tech investment company Gioco Ventures, Chairman of leading table games developer Galaxy Gaming, and Chairman of the International Center for Responsible Gaming. He previously chaired the Nevada Gaming Control Board and is a former Nevada State Senator.
History of commercial gaming in the UAE
The UAE was founded in 1971 and is a federal constitutional monarchy. The legal system is based on the civil law system and Sharia law and gambling has long been prohibited.
Defined in article 460 of the UAE Penal Code as any game “whereby each of the parties thereto agrees - in case of losing - to pay to the winner a certain sum of money or any other thing agreed upon”, gambling is punishable by up to two years in jail and a fine of 50,000 AED.
Lotteries and drawing games (raffles) have existed in the UAE for a number of years, including the Emirates Draw and lotteries based at Abu Dhabi and Dubai airports.
In September 2023, the GCGRA was established as a federal authority “to introduce a world-leading regulatory framework for commercial gaming.”
In July 2024, the GCGRA awarded a license to commercial gaming operator The Game LLC to run the UAE Lottery - the country’s first authorised lottery operation. GCGRA Chairman Jum Murren described the launch of the UAE Lottery as a “pivotal event” that “underscores our commitment to nurturing a secure and enriched commercial gaming environment in the UAE.”
In October 2024, Wynn Resorts announced that the GCGRA had awarded a Commercial Gaming Facility Operator license to Island 3 AMI FZ-LLC - the entity developing the Wynn Al Marjan Island resort in Ras Al Khaimah.
To date, a further six licences have been issued to gaming-related vendors (see full list below) as the GCGRA continues to develop the framework for commercial gaming in the UAE.
How does the GCGRA licensing process work
The GCGRA licensing process consists of five steps:
What types of licences are there?
There are five types of licenses that the GCGRA can grant - three to entities and two to individuals:
How much does a GCGRA license cost?
The GCGRA does not specify exactly how much a license costs, but it does provide information on the different fees that are payable throughout the application and renewal process.
An application fee must be paid in order for the applicant to pass initial screening and gain access to the licensing portal.
An in-principal approval fee equivalent to 10% of the overall license fee is then payable should the GCGRA’s review conclude that in-principle approval can be granted.
A license fee is then payable before the license is granted and the license is then subject to an annual license maintenance fee.
Future GCGRA developments
According to remarks made by GCGRA Chairman Jim Murren at Skift Global Forum East in November 2024, the UAE government is “moving very deliberately” and wants a “state-of-the-art, very compliant, very rigorous” regulatory regime.
This suggests that the GCGRA is unlikely to quickly grant a large number of licenses in the near future but , per Murren, “we’ll see other integrated resorts in the UAE over the next five to 10 years."
During an earnings call in February 2025, Wynn Resorts CEO Craig Billings told investors that he didn’t believe “there is even a deals drop… for a second [casino] license” in the UAE and that the Wynn Al Marjan Island project will give them a “very healthy lead” in the country.
It seems likely that the GCGRA will also eventually regulate online gambling, not least because it has already established specific license categories for internet gaming and sports wagering operators.
In doing so it will follow the lead of numerous US States as well as major sports betting jurisdictions like Brazil which have recently introduced legislation that allows them to regulate, supervise, and secure revenue from the best betting sites and online casinos.
List of GCGRA license holders
Below is the full list of current GCGRA licensees.
Lottery
- The Game LLC (operator of the UAE Lottery)
- Land-based gaming facilities
- Island 3 AMI FZ-LLC (Wynn Al Marjan)
Gaming-related vendors
- Aristocrat Technologies Europe (Holdings) Ltd
- Smartplay International Inc.
- PayBy Technology Projects LLC
- Xpoint Technology FZ LLC
- EQL Games Inc.
- Novomatic AG
- IGT Global Services Limited
Internet gaming
- No internet gaming licensees yet.
Sports wagering
- No sports wagering licensees yet.
GCGRA FAQs
What is the GCGRA?
The General Commercial Gaming Regulatory Authority (GCGRA) is the federal executive authority responsible for licensing and supervising commercial gaming activities in the UAE.
Where is the GCGRA based?
The GCGRA is headquartered at Abu Dhabi Global Market on Al Maryah Island in Abu Dhabi.
How much does a GCGRA license cost?
The cost of a GCGRA license depends on the type of license being applied for. The application fee structure includes an application fee, an in-principle approval fee, and a full license fee.
Which online betting sites have a GCGRA license?
To date, no online betting sites have been issued an internet gaming license by the GCGRA.