Macau's Shift to General Public Players Linked to Rising Gambling Issues

Macau's Gaming Inspection and Coordination Bureau (DICJ) reported a significant increase in casino exclusion applications last year, rising by 67.9% to a total of 952. This marks a notable jump from 567 applications in 2024, excluding court-ordered exclusions. Self-exclusion requests accounted for the majority, with 828 cases, reflecting a 74.3% increase from the previous year.

Third-party applications, which require confirmation from the individual, also saw growth, increasing by 34.8% to 124. These figures show a growing trend of locals seeking to distance themselves from gambling despite an increasing focus on the mass market.

Market Shift

Macau's growing problem with gambling is a trend that follows the shift by casinos from catering to VIPs and high rollers to attract the premium-mass market and general public.

In 2025, the region's six gaming operators collected a record gross gaming revenue (GGR) of US$30.9 billion, the highest since 2019.

However, the landscape of revenue generation has changed significantly after COVID-19. The Chinese government, under President Xi Jinping, dismantled the VIP junket model, which had previously facilitated high-stakes gambling by wealthy mainlanders. The crackdown was part of efforts to curb illegal cash flows, significantly altering Macau's gambling environment.

Nongaming Investments

To secure 10-year extensions of their casino licenses, Beijing and Macau compelled major operators like Sands, Wynn, and MGM to invest US$16 billion in nongaming initiatives. This strategy aims to transform Macau from a high-stakes gambling destination into a more diverse destination for leisure, family vacations, and business.

As a result, VIP gambling rooms have diminished, and casinos are now broadening their marketing efforts. However, Macau officials note that this shift has also contributed to rising gambling issues. In 2025, 828 individuals opted for self-exclusion, a significant increase from 475 in 2024, highlighting growing concerns over gambling addiction.

Regulatory Framework for Exclusions

Law No. 10/2012 serves as the foundation for Macau's self-exclusion program, granting the DICJ authority to implement prohibitions following requests. Changes introduced in December 2019 expanded these regulations, imposing a citywide ban on casino employees' gambling outside their workplaces. Alongside existing rules, the two-year limit on exclusions is designed to be temporary and effective, allowing individuals to request revocation if their situations change.