A new academic report highlights the growing tension between Australia’s gambling industry and its efforts to protect vulnerable communities from gambling-related harm.
The study, published in this year’s first Global Gaming & Tourism Research book from the Macau Polytechnic University (MPU) and authored by Professor Li Bingqin of the Social Policy Research Center at the University of New South Wales, outlines the progress, challenges, and future direction of Australia’s responsible gambling policy.
Australia has one of the highest gambling expenditures per capita in the world, with an average annual spend of over AU$1,200 ($800). In 2020, Australians spent over AU$25 billion ($16.7 billion) on gambling, including A$12 billion ($8 billion) on electronic gaming machines (EGMs) alone.
Despite years of reform, the report notes that ‘high-risk groups—including culturally and linguistically diverse communities, low-income individuals and young people—remain inadequately protected.’
Professor Li describes Australia’s responsible gambling policy as having shifted from voluntary, industry-led measures to increasingly mandatory frameworks. Since the late 1990s, state and federal governments have introduced a range of measures, from self-exclusion programs and pre-commitment systems to advertising restrictions and credit card bans.
Victoria, for instance, became the first state to enforce a mandatory pre-commitment system in 2022, requiring gamblers to set spending limits on EGMs. A nationwide self-exclusion register was also rolled out to prevent registered individuals from accessing online and telephone-based gambling services.
However, the report finds major regulatory weaknesses. One is the fragmented governance structure.
‘Multiple levels of governance have led to enforcement gaps and inconsistent standards,’ the report warns. While the federal government oversees online gambling and broad policy coordination, each state or territory regulates land-based gambling independently, resulting in varying levels of enforcement and consumer protection.
Enforcement itself is also limited. Regulators often lack the authority or resources to impose meaningful penalties, and some operators have withheld information from watchdogs. ‘Existing penalties fail to deter operators,’ the report notes, adding that some fines are so low that they are simply treated as a cost of doing business.
Another major concern raised is the political influence of the gambling industry. The report details how gambling companies have used lobbying and political donations to influence decision-making.
For example, a proposed national pre-commitment system was abandoned after heavy industry opposition. The report points out that ‘gambling companies donate to both major parties, ensuring influence regardless of which one is in power.’ In some election years, such as in Tasmania in 2018, gambling interests were among the top campaign donors.
High-risk communities continue to bear the brunt of gambling harm
The report finds that culturally and linguistically diverse (CALD) populations—particularly Chinese, Vietnamese, and Cambodian communities—have disproportionately high rates of problem gambling.
In some Chinese-speaking groups, the rate of problem gambling is estimated at over 15%, compared with 0.5 percent to 1 percent in the general population. ‘Many migrants experience language barriers and cultural isolation, making them more vulnerable to aggressive marketing and less able to access support services,’ the report explains.
Casinos and gambling venues have actively targeted these communities with culturally tailored marketing strategies, including language services, ethnic cuisine, and special promotions during traditional holidays like Lunar New Year. ‘Casinos use cultural identity to build loyalty,’ the report notes.
Low-income groups are also heavily exposed. The report cites data showing that the lowest-income decile spends over 10 percent of its income on gambling, while the highest-income decile spends less than 1 percent. Moreover, ‘EGMs are five times more concentrated in poorer communities than in wealthier ones,’ the study finds, especially in states like Victoria and New South Wales.
Young people, meanwhile, face growing risks from digital gambling. Online sports betting, esports betting, and gamified gambling apps have become embedded in youth digital culture. The report warns that ‘young people are particularly susceptible to impulsive decision-making and often underestimate financial risks.’
Between 2019 and 2022, the share of 18- to 24-year-olds who had gambled online rose sharply, with more than 40 percent having participated.
Social media and mobile apps have amplified this trend. ‘Online betting companies use algorithms to target young users with personalized ads, especially during sports events,’ Professor Li writes. Some platforms offer virtual currencies, loot boxes and daily login bonuses—features that obscure real-money risks and reinforce habitual use.
Despite efforts to expand education and treatment programs, gaps remain in early intervention. Unlike countries such as the UK, Australian schools have yet to include gambling risk awareness in their health or civics curricula. ‘The lack of early education means young people often see gambling as entertainment rather than a financial hazard,’ the report states.
Looking ahead, Professor Li argues that the future of responsible gambling policy in Australia depends on tightening regulation, improving consistency across jurisdictions, and investing in more culturally appropriate prevention strategies. She writes: ‘Policymakers must move beyond a focus on individual responsibility and address the structural and cultural risks that fuel problem gambling.’
Emerging technologies, such as AI and data analytics, may help monitor betting patterns and support targeted interventions, but only if accompanied by stronger policy will and enforcement mechanisms.
‘Balancing the economic value of the gambling industry with the imperative to reduce social harm remains the central policy challenge,’ the report concludes. Future reforms are likely to focus on national standardization, stricter digital advertising controls, and improved protection for high-risk groups.
