Legal casino gambling age in Andorra
Andorra, a small parliamentary co-principality in the eastern Pyrenees, starts from a general prohibition of gambling and then permits a closed list of games under licence. The framework is Law 37/2014 of 11 December on the regulation of games of chance (Llei 37/2014, de regulació dels jocs d’atzar), now in force as a consolidated text, Law 4/2021 of 22 March. A single regulator, the Andorran Gaming Regulatory Council (Consell Regulador Andorrà del Joc, CRAJ), licenses and supervises operators. The law allows exactly one casino licence. After a contested tender that ran from 2018 to 2020, the country’s first casino, operated by the Andorran company Jocs SA in the Unnic leisure complex in Andorra la Vella, opened on 4 March 2023. The law also provides for online licences, but we found no record that any has been tendered or granted. This guide explains the legal framework, the licensing model, the position of online gambling and of players, taxation, and the protection tools that exist.
Key points
- Article 1 of Law 37/2014 prohibits the practice and operation of games of chance in or from Andorra “by whatever means”, except games authorised under a licence granted under the Law. The current consolidated text is Law 4/2021.
- The CRAJ is the regulator. It issues only one Class A (casino) licence, for an initial term of up to 20 years. Jocs SA holds it and has operated the casino at Unnic since 4 March 2023.
- The Law creates an online licence (Class D@) for casino-type games and betting, granted by public tender for up to five years. We found no evidence that any online licence has been tendered or issued as of October 2026.
- Lotteries and mutual sports betting are supplied mainly by Spain‘s state lottery operator, SELAE, under an authorisation published in Spain in 2020 (Order HAC/204/2020). Andorra has no national lottery of its own.
- A General Register of Prohibitions on Access to Gambling (Registre General d’Interdiccions d’Accés al Joc d’Atzar) operates as a self-exclusion and access-ban list; about 60 people had excluded themselves by February 2026.
Last reviewed: 7 October 2026.
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Historical development
For most of its modern history Andorra applied a policy of general prohibition. The preamble to Law 37/2014 says so directly: the Principality’s policy on games of chance and betting “has always been to apply the principle of general prohibition of these activities”. The preamble gives three reasons for changing course. First, gambling had grown considerably in the neighbouring states of Spain and France. Second, casinos were seen as an essential element of tourist appeal. Third, the offer of gambling, especially online, had been “progressively penetrating” Andorra without any legal framework to control it.
Legalisation was under discussion in the early 2010s. In June 2013 the trade magazine Intergame, citing Fantini’s Gaming Report, reported that the government planned to legalise both land-based and online gaming through a draft bill creating a gambling authority and a licensing system. The General Council (Consell General), Andorra’s parliament, adopted Law 37/2014 on 11 December 2014, and it was published in the Official Gazette (Butlletí Oficial del Principat d’Andorra, BOPA) on 14 January 2015.
The casino tender proved difficult. According to Gambling Insider, thirteen proposals from nine companies were submitted, among them Genting UK, Cirsa, Partouche and Merkur Gaming. The winning bidder was to receive a 20-year land-based licence with a minimum investment of €10 million. In June 2018, according to GGRAsia, the CRAJ chose Jocs SA, an Andorran company partnered with the Austrian equipment maker Novomatic, for a project of around €15 million. GGRAsia reported that Genting, the other finalist, had been disqualified because it could not show that it had secured land for its project.
Unsuccessful bidders challenged the award. SBC News reported in January 2019 that Casinos Austria, Genting, Partouche and Cirsa were preparing a joint lawsuit against the Principality and the CRAJ, alleging serious irregularities in the tender. The regulator itself twice refused to confirm the award. In February 2020, according to Focus Gaming News and European Gaming, it rejected Jocs SA’s final project because of “significant differences between the initial commitments and the final project”. Jocs SA appealed. In August 2020 Focus Gaming News reported that the government’s legal cabinet had upheld the appeal and directed the CRAJ to make the award definitive.
Construction delays followed. The original opening date of 4 September 2022 was moved, with the CRAJ’s approval, to 4 March 2023, after Jocs SA cited supply-chain problems and shortages of building materials (Focus Gaming News, October 2022). The casino opened on that date.
Legal framework
Andorra’s gambling law is contained in a single statute and its implementing regulations:
- Law 37/2014 of 11 December on the regulation of games of chance, the founding statute. It defines the permitted types of games, the licence classes, the regulator, the tax on gambling activities, and infractions and sanctions.
- A legislative decree of 21 March 2018 approving a consolidated (refós) text of Law 37/2014, cited in the Spanish Order HAC/204/2020.
- Law 4/2021 of 22 March, consolidated text of the regulation of games of chance. It incorporates amendments made by Law 14/2017 on the prevention of money laundering and terrorist financing, Law 27/2017 on persons with disabilities and Law 1/2018 on the budget. A version published by the Andorran Chamber of Commerce notes a further amendment by Law 4/2022.
Article 1 sets the basic rule. It prohibits “the practice and the operation of games of chance in the Principality of Andorra or from the Principality of Andorra, by whatever means”, except games that are developed by regulation and authorised under a licence granted under the Law. A game of chance is one in which money or something of value is staked on an uncertain outcome that depends wholly or partly on chance. The Law’s stated purposes, in Article 2, include preventing excessive or pathological gambling, protecting minors and groups at risk, ensuring the integrity and transparency of games, and preventing fraud, money laundering and the financing of terrorism.
Article 4 classifies games into pure games of chance (such as draw lotteries and instant games), mixed games of chance and skill (betting and table games), contests involving chance offered through broadcast or electronic media, and other games such as raffles, traditional bingo (quinto) and promotional lotteries. It also defines online gambling as games conducted exclusively through telematic services, as distinct from terminals located in physical premises.
Because Article 1 permits only games authorised by an Andorran licence, a licence issued in another country does not authorise an operator to offer games in or from Andorra.
Regulator and licensing model
The Consell Regulador Andorrà del Joc is the regulatory and control body created by Title IV of the Law (Articles 79 to 84). It has its own legal personality, develops and supervises the regulation of gambling, grants and renews licences, publishes lists of licence holders in the Official Gazette, may enter into international cooperation agreements and has sanctioning powers over operators. Its board is made up of representatives of the ministries responsible for finance, interior, health, social affairs, economy, tourism and culture, with a director and a secretary.
Andorra uses a closed licensing model: only the classes of licence listed in the Law exist, and some are limited in number. Article 5 of the consolidated text sets out the operator categories, and Article 8 the licence classes:
| Class | What it authorises |
|---|---|
| A | Casino: mixed games, counterparty betting, table games and gaming machines in physical premises (A’ covers ships) |
| B | Bingo halls, including video bingo and prize machines |
| C and C@ | Pure lotteries and mutual sports and horse-race betting, land-based (C) or online (C@) |
| D@ | Online mixed games: betting, table games, machines and bingo |
| E | Non-permanent contests, raffles, lottery shares and promotional lotteries |
| F | Traditional bingo and charitable games |
Article 20 is explicit that the CRAJ “issues a single Class A licence”. Under Article 21 its initial term is set in the tender documents, depends on the investment made, and may not exceed 20 years; it may be renewed for further periods of up to 20 years. Licensed operators in most classes must be Andorran companies whose sole object is gambling, with registered shares. Under Article 11, their directors and those with executive powers must hold Andorran nationality or a valid Andorran residence authorisation. Applicants with final convictions for intentional offences, fraud, money laundering or terrorist financing are excluded (Article 14).
The casino licence is held by Jocs SA. The casino occupies part of the Unnic complex at Prat de la Creu in Andorra la Vella, which also contains restaurants, a nightclub and event spaces (Andorra Insiders). Its table games include roulette, blackjack and several poker variants, alongside gaming machines. In March 2026 Alto Andorra reported that Unnic had received more than 700,000 visitors since opening, of whom more than 360,000 visited the casino, with about 70% of casino visitors coming from abroad. These are operator figures reported by the press, not official statistics.
Online gambling: what is permitted and how it is enforced
On paper, Andorra provides for licensed online gambling. Under Article 34 of Law 37/2014, a Class D@ licence authorises online mixed games of chance and skill, counterparty and exchange betting, table games, online gaming machines and online bingo. It is granted through a public tender, and applicants may not be based in states that lack protections equivalent to Andorra’s. Article 35 limits the initial term to five years, renewable for further periods of up to five years. Class C@ covers online lotteries and mutual betting.
The Law sets technical conditions for online operators. Under Articles 38 to 40 of the consolidated text they must:
- register every transaction in real time in an identified player account;
- verify each player’s identity, age, date of birth and address, and prevent automated (bot) play;
- give the CRAJ access to data on players, accounts and gaming events;
- use the .ad domain or another first-level domain in Andorra, and automatically redirect connections from Andorran territory to that platform;
- keep separate accounts for each Class D@ licence.
In practice, we found no published record of a Class D@ tender or of any online licence being granted. The local news service Alto Andorra, reporting in February 2026, described the 2014 law as restricting gambling to in-person play and stated that the framework limits gambling to in-person play at the casino and bingo hall and bans online operators, betting shops and slot machines. The most accurate summary of the position is therefore that online gambling is lawful only under a licence the Law makes possible but which, as far as we could establish, does not exist. Any online casino offering games to people in Andorra is doing so without an Andorran licence, and falls within the general prohibition in Article 1.
We found no evidence that Andorra keeps a blocklist of gambling websites or requires internet providers or banks to block unlicensed operators. Title VI of the Law (Articles 95 to 106) sets out very serious, serious and minor infractions and the sanctions for them, but the accessible versions of the text did not allow us to verify the amounts of the fines or how they apply to foreign online operators.
Position of players
Article 1 of the Law prohibits not only the operation but also “the practice” of unauthorised games of chance. On its wording, therefore, playing unlicensed games in Andorra is not lawful. However, we could not verify from the accessible text whether Title VI makes players, as opposed to operators, liable to sanctions, and we found no report of a player being fined or prosecuted for gambling online. The practical risks are clearer: a player using an unlicensed website has no recourse to the CRAJ, and none of the Law’s safeguards, such as identity checks, separate player accounts and the register of access bans, apply.
Within the licensed sector, access to the casino requires a valid identity document (Andorra Insiders). The Law also bars certain groups from playing, as described below.
Taxation
Operators
Title V of Law 37/2014 contains the fiscal provisions. Chapter 1 (Articles 85 to 92) creates a tax on gambling activities (impost sobre activitats de joc d’atzar), and Chapter 2 (Articles 93 and 94) creates fees for administrative services. The preamble states a rule on how the money is used: 60% of the tax raised from in-person gambling must go to projects that benefit society, “to help socially marginalised groups and to promote education, research, culture and social security”. We were not able to verify the current tax rates for each licence class from an official source, so they are not given here.
Lottery revenue is handled separately. Under the convention authorised by Spain’s Order HAC/204/2020, the CRAJ receives 15% of sales of SELAE products in Andorra, after deduction of direct and indirect taxes and of 5.5% for infrastructure costs.
Players
We did not find an official statement of how Andorran income tax treats winnings from the casino, and readers should consult the Andorran tax authorities. For Spanish lottery products bought in Andorra, larger prizes are paid in Spain through SELAE’s partner banks (Order HAC/204/2020). Reporting on a May 2026 win in Andorra la Vella, Alto Andorra noted that the Spanish 20% withholding on the part of a prize above €40,000 was applied.
Lotteries
Andorra does not run a national lottery. The CRAJ has instead authorised foreign lottery operators. In March 2017 Focus Gaming News reported that the CRAJ had proposed agreements to Spain’s SELAE, the ONCE (the Spanish national organisation of the blind, which runs its own lottery) and the Catalan lottery, while France’s La Française des Jeux had declined to sign initially, reserving the possibility of doing so later.
The arrangement with SELAE was formalised by Spain’s Order HAC/204/2020 of 23 January 2020, which authorises SELAE to market lotteries, mutual sports betting and mutual horse-race betting in Andorra under Andorran Class C and C@ licences. SELAE operates at its own risk and expense and must apply responsible-gaming principles, including the protection of minors. The convention runs for five years and renews tacitly for equal periods unless either party objects. In 2020 Lottery Daily reported that the CRAJ’s annual plan included a study of the feasibility of a national lottery, without a timetable. We found no evidence that such a lottery has been created.
Consumer protection and responsible gambling
The Law contains specific provisions for the protection of minors and protects groups at risk through access bans. The preamble and the second additional provision require a General Register of Prohibitions on Access to Gambling (Registre General d’Interdiccions d’Accés al Joc d’Atzar), which licensed operators must check.
According to Alto Andorra (February 2026), the register is run by the CRAJ. Self-exclusion requires an application in person and lasts indefinitely; a person can ask to be removed only after at least one year. According to the CRAJ, whose director is Xavier Bardina, about 60 people were self-excluded, a number that had stayed broadly stable since the casino opened. People receiving public social assistance, together with their families, are barred automatically from the casino and bingo hall while the aid continues. Clinical support is coordinated by the Addictions Unit (UCA). The first Responsible Gambling Day was held on the date of the report, and officials said they planned to make it an annual event.
We did not find a dedicated national gambling helpline in Andorra. General guidance is available in our responsible gambling guide.
Recent and upcoming developments
- Casino operations (2023 to 2026). The casino opened on 4 March 2023. By March 2026 the Unnic complex reported more than 700,000 visitors in total and more than 250,000 in 2025 (Alto Andorra).
- Self-exclusion review (February 2026). The CRAJ reported that the number of self-excluded people had not risen since the casino opened, at about 60.
- Lottery supply. In February 2026 officials said that ONCE lottery dispensers from Spain were expected to arrive soon. The SELAE convention, approved in 2020 for an initial five years, renews tacitly; we found no public notice that it has been ended.
- Online licensing. The Class D@ licence remains in the Law, but we found no announcement of a tender or of any draft reform to open the online market as of October 2026.
Casino listings for players in Andorra
The listings below are generated automatically from our casino database. They do not show that an operator is licensed in Andorra. Andorran law prohibits games of chance offered in or from Andorra without a CRAJ licence, and we found no online casino licensed by the CRAJ. The listings must therefore not be read as an indication that playing online casino games in Andorra is lawful. The only licensed casino is the land-based casino operated by Jocs SA in Andorra la Vella.
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Sources and further reading
- Consell General d’Andorra, Llei 37/2014, de l’11 de desembre, de regulació dels jocs d’atzar (2014).
- Consell General d’Andorra, Llei 4/2021, del 22 de març, de text consolidat de regulació dels jocs d’atzar (2021).
- Cambra de Comerç, Indústria i Serveis d’Andorra, Llei de text consolidat de regulació dels jocs d’atzar (updated version) (2022).
- Ministerio de Hacienda (Spain), Boletín Oficial del Estado, Orden HAC/204/2020, de 23 de enero, por la que se autoriza a la Sociedad Estatal Loterías y Apuestas del Estado a comercializar sus juegos en el Principado de Andorra (2020).
- Intergame, The tiny European country of Andorra is about to legalise gaming (2013).
- Gambling Insider, Race for Andorra casino licence nears final furlong (2018).
- GGRAsia, Jocs SA pips Genting to Andorra casino licence: reports (2018).
- SBC News, Euro quartet demands that Andorra expel Jocs SA (2019).
- Focus Gaming News, JOCS SA espera por la licencia andorrana (2019).
- Focus Gaming News, Niegan permiso para el casino de Andorra (2020).
- European Gaming, Andorra’s gaming regulator rejects casino licence award to Jocs SA (2020).
- Focus Gaming News, Adjudican el casino de Andorra (2020).
- Focus Gaming News, El Casino UNNIC de Andorra abrirá sus puertas el 4 de marzo (2022).
- Andorra Insiders, Casino in Andorra: Unnic opens its doors (accessed 7 October 2026).
- Focus Gaming News, Andorra no llega a un acuerdo con la lotería (2017).
- Lottery Daily, Andorra’s regulator aims to create a national lottery (2020).
- Alto Andorra, Andorra casino fails to boost gambling self-exclusions after three years (2026).
- Alto Andorra, Unnic Andorra hits 700,000 visitors (2026).
- Alto Andorra, National lottery jackpot won in Andorra la Vella (2026).
