The number of women who gamble in online gaming has increased in one year by almost 25%, as stated in a report prepared by the Directorate General for the Regulation of Gambling (DGOJ), dependent on the Ministry of Social Rights, Consumer Affairs and Agenda 2030. It is not yet possible to speak of a paradigm shift by gender, far from it, since online gambling continues to show intense masculinization. However, the department led by Pablo Bustinduy has set itself the objective of identifying differences in gambling patterns to better fine-tune public policies. The question is how, since the entire reform of gambling regulations sank in one fell swoop in 2025.
These are the data
According to data collected by the DGOJ, the number of female players has increased by 23.53% in one year, which resulted in 64,000 more women gambled online in Spain, a percentage much higher than the growth in the number of men during that time.
By age, the special impact on young women stands out, since almost 60% (59.4%) are under 35 years old, and reflects, in turn, that the presence of women in online gaming declines in older ages.
Despite this, online gambling continues to be a sector predominantly occupied by men. Women who actively gamble barely represent 16.9% and it is estimated that, in total, there are 335,627 female gamblers among the almost two million people (1,991,550) who place online bets.
Victims of impersonation
From the study it also emerges that almost half (46.1%) of the complaints that were filed for identity theft in gaming were filed by women, despite the fact that their participation in online gaming is much lower than that of men.
Almost half (46.1%) of the complaints that were filed for identity theft in gaming were filed by women
This figure refers to the complaints that follow the Protocol for Action for the Impersonated Taxpayer (PACS) and, according to the Ministry, could reflect the existence of dynamics of financial control in close environments, the persistence of gaps in digital security and the possible use of female identities in fraudulent practices.
Regarding spending patterns, differences have also been detected based on gender. Women show higher maximum gains and lower extreme losses, with their average loss being 539 euros, which points to a concentration of spending in a reduced number of people. Likewise, women deposit, on average, less capital than the general population (2,019 euros annually compared to 2,482 euros).
What is the plan?
Last December Congress scrapped in one fell swoop and without much noise the ambitious reform promoted by the Ministry of Social Rights, Consumer Affairs and Agenda 2030; and to date, Bustinduy's team has not clarified if it plans to resume it.
What happened?
Bustinduy tried to consummate his proposal through an amendment to the Customer Service Bill, but the absolute majority of the Popular Party in the Senate suppressed it and, upon the text returning to the Lower House, the Plenary did not rescue it.
In recent weeks, Democrat has probed the Ministry on several occasions to know if they are weighing to push the reform proposal again.
What are the possibilities?
- Via amendment to any law: the Trojan Horse chosen first was the Bill for the creation of the State Public Health Agency; and upon its decline, the processing of the Customer Service Bill was used. Consequently, any other initiative in process could be used, as it would not be the first time, although resorting to an intrusive amendment was already harshly criticized by the sector.
- Via bill: this formula is what the sector is asking for. In statements to Demócrata, Alejandro Landaluce, general director of the Business Council for Gaming (Cejuego), assured that he did not oppose the revision of the Gaming Law, but asked that “a legislative modification of such magnitude must be carried out through a transparent legislative process, which allows the participation of all actors involved in the activity.” The Prior Public Consultation process and the Public Hearing and Information phase would allow it; not so the bill proposal, although it is a real possibility, especially if the PSOE does not end up sharing each and every one of the elements that make up Bustinduy's proposal. In the latter case, it would be promoted through the Plurinational Parliamentary Group Sumar.
And to transact?
The Rules of Congress makes clear in its article 118 that transactional amendments must be related to those already submitted. Within the framework of the Draft Law on the Protection of Minors Online, the Executive included the prohibition of the so-called loot boxes (loot boxes) and it could have been another good Trojan Horse to land the Gambling reform. However, the period for amendments to the articles already closed on November 26 and neither Sumar, nor the PSOE, registered amendments in this regard.
The only ones that could be used to transact and pave the way for the rest are separate amendments registered by Junts and Vox related to loot boxes. ERC, EH Bildu and BNG (Mixed) also have one registered that could serve; but none seems like a real possibility because, to transact, the original amendment must be withdrawn, which requires the approval of the groups involved.
Even so, even in the event that they transacted, the outlook of the Bill for the protection of minors in digital environments is not at all promising. The initiative does not appear on the list of those that Junts would be willing to negotiate. Furthermore, there are several hot spots that hinder understanding: who assumes parental control and the labeling of technological products.
What was raised
The measures that the Ministry of Social Rights, Consumer Affairs and Agenda 2030 intended to approve through the amendment to the Customer Service Law and which was finally struck down are:
- Changes in advertising
Bustinduy wanted to prohibit the sending of commercial communications neither by email -or similar- nor by postal mail without the prior authorization of the recipient.
The dissemination of advertisements in information society services would only be possible if they are placed on websites or applications of operators or media that serve as support.
In search engines, they could only appear as a result of organic positioning or in cases where they are the result of a commercial agreement between the advertiser and the owner thereof; subject to them matching keywords or phrases directly connected.
Web pages or applications whose main activity is the offering of products or information about gambling activities and those that offer coverage of sports and/or equestrian events could also host this type of advertising. As a condition, they must have a specific section, they must have mechanisms that prevent access by minors and periodically disseminate messages about “safe gambling”.
The purpose, ultimately, was to rescue the points of the Royal Decree 958/2020 that were struck down by judgment 537/2024 of the Supreme Court.
- Video platforms and social media
Video sharing services through platform and social networks would fall under a different regulatory umbrella with their own characteristics.
Gaming companies could only direct audiovisual commercial communications on video-sharing services through platforms on channels whose main activity consists of offering content about gaming; adopting, furthermore, the necessary mechanisms to prevent minors' access to their account or channel and periodically disseminating "safe gaming" messages.
In the case of social networks, only those who use instruments that ensure it is not directed at minors and that segment the potential audience could send advertising.
Likewise, advertisements could only be sent to people who follow on social media the accounts or channels of the gaming operator, who have expressed an active interest in it and/or to registered clients.
- Promotions
Companies could not resort to promotions and discounts to attract new customers. The Executive's amendment establishes that they can only target customers with an open account of at least 30 days and whose profiles have been documentarily verified.
Lastly, the promotions should appear in an independent section on the website or application and be disseminated in establishments dedicated to gaming.
- Prohibited Characters
Among the modifications that the socialists and Sumar intended was the prohibition of people or characters (real or fictitious) of relevance and notoriety in commercial communications. Nor could narrators of live broadcasts of sporting events do the same (commercial dissemination may only occur in the context of the event's narration) and television or radio presenters.
All these demands now remain in the air, at the expense of what the Ministry decides to do.