Botswana’s parliament has approved major gambling reforms that would lower the legal age to 18 while strengthening AML controls, monitoring and enforcement.

Botswana’s National Assembly has approved the Gambling (Amendment) Bill, 2026, retaining a controversial proposal to lower the country’s minimum gambling age from 21 to 18 as part of a wider modernisation of the regulatory framework.

The bill passed its third reading on 13 August, following debate at second reading and clause-by-clause consideration during the committee stage.

However, the legislation has not yet been confirmed as having received presidential assent or entered into force. If enacted, its provisions will take effect on a date determined by the responsible minister and published in the Government Gazette.

Alongside the age change, the legislation introduces stronger anti-money laundering requirements, ownership controls, monitoring obligations and tougher penalties as Botswana responds to the rapid expansion of both licensed and illegal online gambling.

Gambling age could fall to 18

The most contested element of the legislation is Clause 2, which would replace references to the age of 21 in Botswana’s Gambling Authority Act with 18.

Supporters argue that the change would bring gambling legislation into line with Botswana’s general age of majority and recognise that people between 18 and 20 are already considered adults in many areas of civic and economic life.

There are also concerns that maintaining a higher gambling age could push younger adults towards illegal online platforms, where regulated player protection measures do not apply.

Labour and Home Affairs Minister Major General Pius Mokgware argued that legislation needs to be practically enforceable.

“Do not have legislations which you cannot enforce, it is dangerous,” Mokgware told parliament.

However, several MPs opposed the change.

Moshupa/Manyana MP Karabo Gare argued that 18-year-olds could be particularly vulnerable to gambling harm.

“When a person is still 18, he or she cannot make informed decisions, hence they end up being addicted to the game,” Gare said.

Botswana Congress Party MP Kenny Kapinga similarly supported retaining the existing minimum age of 21 because of concerns surrounding younger adults’ exposure to gambling.

Despite the opposition, the bill passed with the age reduction intact.

Illegal betting drives regulatory reform

The debate comes as Botswana faces a substantial illegal online gambling market.

Acting Gambling Authority CEO Moruntshi Kemorwale has estimated that unlicensed gambling platforms divert approximately P850 million ($63.2 million) from Botswana’s economy each year.

Authorities are also concerned that illegal platforms expose children and teenagers to gambling without the safeguards imposed on locally licensed operators.

The scale of unregulated gambling has been a long-standing issue. In January 2024, before locally licensed online operators became active, the Gambling Authority reported around 510,000 monthly cases of Botswanans participating in illegal online gambling.

The Authority subsequently estimated that only around 40% of Botswana’s approximately 550,000 active bettors were using locally licensed operators, leaving a significant proportion of gambling activity outside the regulated market.

Authorities have therefore been working with financial and communications bodies to restrict access to illegal platforms and disrupt their payment channels.

Stronger AML and ownership controls

The amendment bill also introduces significant changes aimed at bringing Botswana’s gambling framework more closely into line with the Financial Intelligence Act and Financial Action Task Force standards.

The proposals include strengthened requirements around beneficial ownership, financial and controlling interests, fit-and-proper assessments and know-your-customer procedures.

Gambling Authority approval would be required when a party seeks to acquire a direct or indirect financial or controlling interest of 5% or more in a licensed business, unless regulations establish a lower threshold.

The changes are intended to provide regulators with greater transparency over who ultimately owns and controls gambling companies while reducing exposure to money laundering and other financial crime risks.

Central monitoring system planned

Technology also forms an important part of Botswana’s efforts to modernise gambling oversight.

Most licence holders would be required to connect gambling machines and devices operating on their premises to the Gambling Authority’s statutory monitoring system.

Casino and bingo operators would instead be required to install their own monitoring systems.

Kemorwale has previously stressed the importance of developing a central electronic monitoring system as the market expands, particularly as more gambling activity moves online.

“Truth be told, this industry is evolving as the sun rises. You snooze, you lose,” he said.

The Authority has acknowledged that it continues to rely on external specialists for some technical regulatory functions because Botswana currently has limited domestic expertise in certain areas.

Tougher penalties introduced

The legislation would also strengthen enforcement powers.

The maximum penalty for contravening Section 87(1) of the Gambling Authority Act would increase to a P100,000 fine, imprisonment for up to five years, or both.

At the same time, the legislation introduces procedural protections for licensed businesses.

Before suspending, revoking or refusing to renew a gambling licence, the Gambling Authority would be required to provide the operator with an opportunity to be heard.

Responsible gambling remains concern

The potential reduction of the gambling age has also intensified discussion around responsible gambling measures.

Kemorwale said earlier this year that reported problem gambling had declined from 5% in 2020 to 3.4% in 2025, which he partly attributed to Botswana’s National Responsible Gambling Programme and wider education initiatives.

Nevertheless, MPs have called for additional safeguards as the market expands.

Environment and Tourism Minister Dr Wynter Mmolotsi proposed establishing a dedicated rehabilitation facility for people experiencing gambling harm.

He also suggested Botswana explore technology capable of detecting extended gambling sessions, unusual betting patterns and other indicators of potentially harmful behaviour.

“In other countries, such systems detect the time taken, every bet placed, how is the game played and thus help to curb addiction,” Mmolotsi said.

Kgatleng Central MP Mpho Morolong similarly emphasised the importance of consumer education.

“Gambling should be taught as entertainment rather than a way to make money,” Morolong said.

Regulated market grows rapidly

The reforms arrive as Botswana’s licensed betting industry continues to expand following the Gambling Authority’s 2023 licensing process for bookmaker and totalisator operators.

Sunbet Botswana launched online sports betting in February 2025 and subsequently reported a 4,700% increase in registrations during its first month, although the company did not disclose the underlying comparison figure or total number of registrations.

Licensed operators accepted approximately P150 million in wagers during March 2025, according to the Gambling Authority. Players received P135 million in winnings, leaving gross gambling revenue of approximately P15 million.

By December 2025, Kemorwale said gambling revenue had exceeded P700 million, with the Authority expecting the industry to surpass P1 billion by the end of the 2026/27 financial year in March 2027.

That rapid expansion is increasing pressure on Botswana to ensure its regulatory infrastructure develops alongside the market.

Presidential assent remains next step

Following parliamentary approval, attention now turns to presidential assent and implementation.

Until that process is completed, Botswana’s existing minimum gambling age of 21 remains in place.

If enacted in its current form, the Gambling (Amendment) Bill would represent a significant overhaul of the country’s gambling framework, simultaneously opening regulated gambling to adults aged 18 to 20 while introducing stronger controls around ownership, financial crime, monitoring and enforcement.

For the Gambling Authority, the next challenge will be translating those legislative changes into effective oversight while continuing to shift consumers away from a sizeable illegal online market.

Source: IGB