UK Gambling Commission Launches Illegal Gambling Index Based on Seven Behavioural Indicators

The UK Gambling Commission has launched an Illegal Gambling Index that combines seven behavioural indicators to track long-term consumer engagement with unlicensed websites. First-year data from the Gambling Survey for Great Britain shows 1 per cent of respondents engaged with illegal sites over the past 12 months, rising to 4 per cent among those who gambled online. Around 2.5 per cent of online gamblers reported use in the four weeks before the survey.

As detailed by Focus Gaming News, the index addresses shortcomings in traditional surveys, where consumers may not recognize or admit to illegal activity. It tracks actions such as using sites unregistered with Gamstop, opening accounts without age or identity verification, cancelling withdrawals before payout, and employing VPNs for restricted services. Licensed operators have barred such reversals since 2021.

Framework Development and Initial Findings

Rupam Jagota, Research and Impact Manager at the Commission, said understanding these consumer characteristics "has been no easy task" because engagement "is hidden, driven by a complex number of factors, and sometimes unintentional." The index was built through surveys, interviews, focus groups, expert input and specialist panels. Jagota added that it "has therefore been designed to be an adaptable measure" to refine as the market evolves.

The survey data covers four quarterly waves from April 2025 to April 2026, with 14,257 respondents including 3,569 online gamblers. 94.4 per cent showed no indicators of illegal use. 128 respondents met the threshold for classification as users. Among them, 58 per cent knowingly used non-Gamstop sites, 56.6 per cent cancelled withdrawals, and nearly 47 per cent joined sites lacking verification checks. Concerns exist over the small sample size, yet Sue Young, the regulator’s executive director for operations, said those using illegal operators "are more likely to experience harm."

Refining Metrics for Targeted Oversight

The Commission will add survey questions in 2027 to examine four user personas: Self-Excluders, Skilled Advocates, Social Explorers and Accidental Tourists. It will continue partnering with government bodies, operators, technology providers and financial institutions on disruption efforts. This structured approach equips regulators to move from broad estimates toward precise tracking, though early reliance on limited respondent pools signals the importance of scaling research to support effective enforcement and reduce identified harms.