Despite its size and appetite for betting, Florida remains one of the more tightly controlled US gambling markets. Yet, with over 21 million residents and 10 times that number in annual tourists, the state presents an enormous revenue potential.
Market entry is far from straightforward since a monopoly has kept commercial online operators locked out. Still, industry experts speculate that Florida’s market could eventually open to wider competition, following in the footsteps of states like Michigan, Connecticut, and Arizona, where tribal and commercial operators coexist.
This guide explores everything operators need to know about the current prospects and restrictions, from understanding the state’s gambling compact to assessing the legal battles that could reshape the market.
Is Florida the next big opportunity or a high-risk waiting game? Let’s find out.
Disclaimer
This information is not intended to be legal advice and is solely extracted from open sources. It should not be relied upon as a substitute for professional legal advice, and Altenar does not accept any liability in relation to its use.
The History of Gambling in Florida
Florida's gambling history is an evolution of shifting laws, legal battles, and economic stakes. Before Florida took its first steps toward legal gambling, betting operated in a grey area, largely unregulated and driven by underground networks. Informal wagering on horse racing, card games, and number rackets flourished in the early 20th century, often linked to organised crime and political corruption. By the late 1920s, pressure mounted to regulate and tax gambling rather than leave it to criminal enterprises.
The state's first significant step into legalised gambling came in 1931 when lawmakers narrowly approved horse and greyhound racing, overriding the governor’s veto by a single vote. This set the stage for decades of regulatory back-and-forth.
In 1935, jai alai and slot machines were legalised, but just two years later, slot machines were banned again, reflecting the state’s divided stance on gambling. The 1970s saw another shift with the legalisation of bingo, creating the basis for more regulated gambling activities.
One of the most significant moments came in 1979 when the Seminole Tribe of Florida opened the country’s first high-stakes tribal bingo hall. This move reshaped gaming regulations nationwide, forcing legal recognition of tribal gaming rights and paving the way for Native American casinos across the US.
The state continued to regulate and expand gambling over the decades, but a major turning point came in 2021. Governor Ron DeSantis signed a 30-year compact with the Seminole Tribe, granting them exclusive rights to sports betting. The agreement sparked immediate legal challenges over whether it violated state and federal laws. Despite the legal uncertainty, the Seminole Tribe launched its online sports betting platform, Hard Rock Bet, in late 2023, marking a milestone in Florida’s gambling industry.
Timeline of Events
Below is a timeline of the key events that have defined the state's gambling industry:
1931: Horse and dog racing were legalised.
1935: Jai alai and slot machines were legalised.
1937: Slot machines were banned again amid pressure.
1970: Bingo legalised, creating charity-run opportunities.
1979: Seminole Tribe opened its first high-stakes tribal bingo hall.
1986: Voters approved the Florida State-Run Lottery.
1988: Indian Gaming Regulatory Act passed, strengthening tribal gaming rights.
2004: Slot machines approved at licensed pari-mutuel facilities.
2010: Seminole Tribe granted exclusive rights to operate table games.
2018: Amendment 3 passed, requiring voter approval for future gambling expansion.
2021: State Governor signed a 30-year compact with the Seminoles.
2023: Seminole Tribe launched Hard Rock Bet, Florida’s first online sportsbook.
2024: Seminole Tribe and West Flagler settle litigation, bringing Jai Alai betting to the Hard Rock Bet app in 2025.
The Current Situation for Legal Gambling
Public opinion has remained divided in recent years, with some viewing gambling as a lucrative industry and others raising concerns over regulation and social impact. As legal battles continue, Florida’s gambling market remains a key focus for operators and stakeholders looking to understand its evolving regulatory environment for legal gambling.
Today, Florida offers a variety of regulated gambling activities. The state permits cardrooms, slot machines in select counties, pari-mutuel wagering on horse races, and operates a state lottery. Notably, the Seminole Tribe's Hard Rock Bet platform has introduced mobile sports betting, marking a significant development in the state's gaming offerings.
Cardrooms operate within licensed pari-mutuel facilities and offer competitive games like poker. Slot machines are also authorised in Miami-Dade and Broward counties, with eight non-tribal businesses licensed to provide slot gaming in these areas. Pari-mutuel wagering remains a fixture, allowing bets on horse racing events, and the Florida Lottery continues to be a significant revenue generator.
In December 2023, the Seminole Tribe expanded its gaming operations by launching retail sports betting at its casinos. This move followed the introduction of their online casino and sports betting platform.
Understanding Florida’s Gambling Compact
The 2021 Gaming Compact between the State of Florida and the Seminole Tribe grants the Tribe significant exclusivity over certain gaming activities, including slot machines and banked card games at its gaming facilities. In return, the Tribe provides revenue-sharing payments to the state, with a minimum guarantee of $2.5 billion in the first five years. The compact is valid until July 31, 2051.
Slot Machines & Cardrooms
Slot machines are highly regulated and only permitted at eight licensed pari-mutuel facilities in Miami-Dade and Broward counties and tribal casinos. Operating them outside these locations, such as in bars, gas stations, or adult arcades, is illegal.
Cardrooms at licensed pari-mutuel venues may offer poker variations such as Texas Hold ’Em, Omaha, and Seven-Card Stud. Some also host tournaments with large prize pools. The Seminole Tribe holds exclusivity over banked card games like blackjack, baccarat, and chemin de fer, as per Chapter 849.086, Florida Statutes.
Online & Retail Sports Betting
The compact allows the Seminole Tribe to operate statewide mobile sports betting via servers located on tribal lands to comply with the Indian Gaming Regulatory Act (IGRA) 1988. Legal challenges initially questioned this setup, but a 2024 legal settlement confirmed its legitimacy. Commercial iGaming expansion would require renegotiating the compact, state legislative approval, and federal authorisation.
Retail, Land-Based and Non-Casino Opportunities
Florida still presents a number of avenues for non-tribal operators interested in retail, land-based, and non-casino gaming ventures, provided they adhere to state regulations.
Current Legal Retail Gambling Options in Florida
The state permits pari-mutuel wagering on activities such as horse racing, harness horse racing, simulcast greyhound racing (simulcast betting on out-of-state greyhound races), and jai alai games (a high-speed ball sport played with a ball and curved basket against a three-walled court). These events are hosted at licensed pari-mutuel facilities regulated by the Florida Gaming Control Commission (FGCC).
In addition to this, licensed cardrooms operate within these pari-mutuel venues, offering poker and domino games in a non-banking format. These cardrooms must comply with specific state regulations, including the requirement to conduct a certain number of live performances annually to maintain their licences.
How to Partner with Florida’s Pari-Mutuel Industry
Non-tribal operators have the opportunity to explore partnerships with existing pari-mutuel permit holders to establish a presence in Florida's gaming market. Key venues include horse racing tracks and jai alai frontons. For example, collaborations can involve managing cardroom operations or other permissible gaming activities. Prior to initiating such arrangements, it's essential to structure agreements that comply with state laws and regulations and ensure all licensing requirements are met.
Exploring Non-Casino Gaming Opportunities
Fantasy sports in Florida remain legally uncertain. The 2021 Seminole Gaming Compact included provisions for legal fantasy sports, but in 2023, the Florida Gaming Control Commission issued cease-and-desist letters to certain operators. Meanwhile, sweepstakes, casinos, and skill-based gaming machines face heightened regulatory scrutiny, restricting their operation outside approved venues.
Following the 2021 Seminole Gaming Compact, regulatory actions have tightened restrictions on non-tribal gaming, making many such operations illegal outside approved venues. Either way, operators should be aware of these restrictions, exercise caution, and seek legal counsel before offering such services.
All things considered, while Florida's gaming market offers options for non-tribal operators, traversing the complex regulatory environment requires diligence and strategic planning. To succeed with market entry in these areas, operators must stay updated with legislative changes and strive to form compliant partnerships.
Challenges of Retail Betting Expansion
Retail betting expansion in Florida comes with strict regulatory barriers and high financial commitments. Under state law, only pari-mutuel facilities in Miami-Dade and Broward Counties licensed for pari-mutuel wagering in 2020-2021 may operate slot machines. New market entrants cannot apply for standalone slot machine licences.
Key Costs for Retail Expansion:
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Slot Machine Facility Licence: Restricted to select pari-mutuel facilities.
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Annual Slot Machine Licence Renewal: $2 million.
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Occupational Licensing Fees: Varies by employee role.
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Background Checks & Compliance Costs: These are required for all operators and key personnel.
Beyond financial costs, operators face strict zoning laws, FGCC oversight, and competition from the Seminole Tribe, which holds significant market control. Slot machines are only legal at licensed pari-mutuel facilities in Miami-Dade and Broward Counties and on tribal lands. Offering slot gaming at unlicensed venues, such as bars or adult arcades, is illegal.
State Gambling Authorities and Their Role
Florida’s gambling industry operates under a nexus of agencies. These governing bodies oversee licensing, compliance, enforcement, and tribal gaming operations:
Florida Gaming Control Commission (FGCC)
Established in 2021, the FGCC is the primary authority regulating gambling activities in the state. This five-member body oversees pari-mutuel wagering, cardrooms, and slot machine operations in approved counties while enforcing gaming compacts with the Seminole Tribe of Florida. However, its jurisdiction does not extend to the Florida Lottery.
The Florida Gaming Control Commission plays a decisive role in licensing, compliance, and enforcement for operators considering market entry. The agency sets operational requirements, conducts background checks, and ensures adherence to Florida's complex gambling regulations. It also investigates illegal gambling activities through its Division of Gaming Enforcement, which has the power to conduct audits, issue penalties, and revoke licences for non-compliant operators.
Seminole Tribal Gaming Commission (STGC)
The Seminole Tribal Gaming Commission (STGC) is responsible for regulating all gaming activities on Seminole tribal lands in Florida, ensuring compliance with federal, state, and tribal regulations. It safeguards the assets and integrity of the Seminole Tribe’s gaming operations, enforcing internal control standards and overseeing key properties such as Hard Rock Bet and other Seminole-owned casinos.
While the Florida Gaming Control Commission (FGCC) regulates non-tribal gaming statewide, the STGC focuses exclusively on operations within tribal jurisdiction. Its role is part of a broader regulatory framework, where federal oversight falls under the National Indian Gaming Commission (NIGC), the FGCC manages state oversight, and the STGC enforces tribal oversight. This multi-layered structure ensures that gaming on Seminole lands adheres to strict legal, operational, and security standards while upholding the terms of the gaming compact between the Tribe and the State of Florida.
Florida Department of Business and Professional Regulation (DBPR)
The DBPR was historically responsible for regulating gambling in Florida before the FGCC took over most oversight functions. It continues to handle some regulations and compliance aspects with specific commercial gambling laws, ensuring that licensed operators meet professional standards and operational requirements.
Today, the Department of Business and Professional Regulation manages business licences for pari-mutuel facilities and issues occupational licences for gaming employees, ensuring adherence to professional standards and operational requirements. Together with the FGCC and other agencies, it collaborates to uphold the integrity of the state's gambling industry.
Florida Lottery
The Florida Lottery is a state-run agency managing lottery games, instant tickets, and multi-state lotteries such as Powerball and Mega Millions. Established in 1986, its primary mission is to generate revenue for public education while ensuring fair play, security, and integrity in its operations.
The Florida Lottery regulates its network of retailers through a stringent application and background investigation process, as outlined in its Retailer Rules. Unlike other regulatory bodies, the Florida Lottery focuses solely on lottery-related activities and does not oversee other forms of gambling within the state.
Legal Challenges to Florida’s Gambling Monopoly
Florida's gambling landscape is notably restrictive, primarily due to Amendment 3, which was passed in 2018. This amendment grants Florida voters exclusive authority to authorise casino gambling through citizen-initiated ballot measures, which effectively limits legislative power in gambling expansion.
The most significant legal battle has been over the Seminole Tribe’s gaming compact, which granted them exclusive rights to online sports betting. Opponents argued the deal violated the Indian Gaming Regulatory Act (IGRA) because bets were placed outside tribal land. But in June 2024, the US Supreme Court declined to hear the case, effectively sealing the Seminole Tribe’s dominance over Florida’s betting market.
Despite this, there’s still momentum behind breaking the monopoly. Some lawmakers are pushing for commercial iGaming, but with Amendment 3 requiring voter approval, any change is an uphill battle. The process is slow, expensive, and politically charged, making immediate market entry a long shot. On the other hand, some US states have figured out how to balance tribal and commercial gaming. Connecticut, Michigan, and Arizona, for example, have all introduced dual-operator models that allow both tribal and private entities to coexist, something Florida could consider in future negotiations.
For now, however, the timeline for regulatory change, if any is indeed forthcoming, remains uncertain. Key events to watch include upcoming legislative sessions and potential ballot initiatives. While Florida’s market remains stationary for now, shifting political tides and industry pressure could create new openings for commercial operators in the years ahead.
Opportunities and Future Outlook
With a population exceeding 21 million, a thriving tourism sector, and a strong betting culture, Florida represents one of the US's most lucrative yet underdeveloped online gambling markets. Operators watching from the sidelines ask the same question: ‘How long before Florida fully embraces online sports betting and casino gaming?’
As things stand, sports betting is legal in Florida but only through the Seminole Tribe’s Hard Rock Bet platform. Following years of legal disputes, the tribe secured exclusive mobile sports betting rights, creating a monopolistic landscape that has left commercial operators out in the cold. However, major industry players are unlikely to accept this as the final word. Legal battles continue over whether future expansion will require voter approval under Amendment 3, which restricts gambling expansion without a statewide referendum.
Meanwhile, Florida’s pari-mutuel industry, once a dominant force, is shrinking. Dog racing is gone, and many horse tracks have closed or pivoted to poker rooms and slot parlours. However, retail casino gaming remains strong, especially at Seminole-owned properties, and the demand for interactive gaming options is growing.
Florida’s gaming market is a sleeping giant, generating billions annually, but online casino gaming remains untapped. Compare this to New Jersey’s $1.9 billion annual online gaming revenue, and it’s clear Florida is sitting on a potential gold mine. The demand is there. Sports bettors and casino players have shown a strong appetite for digital gaming, but the status quo remains without legislative action.
Opponents of online gambling fail to realise that sweeping it (commercial online gambling legislation) under the rug will only serve to exacerbate any issues with problem gambling
Michael Bolcerek, former President of the Poker Players Alliance
As of 2025, Florida’s iGaming future remains uncertain, with key developments likely shaped by regulatory negotiations and economic incentives over the next 12 months. The Seminole Tribe's exclusive control over online sports betting remains a defining factor, while discussions on potential tax reforms could influence broader market access. If policymakers introduce a commercial iGaming framework, Florida could emerge as one of the most lucrative online gambling markets in the US. However, until significant legislative shifts occur, operators face a high-risk, high-reward market.
Advantages and Disadvantages of Operating in Florida’s Gambling Market
Like all US. States, Florida has unique advantages and drawbacks for operators eyeing the potential for market entry. Here are the key highlights.
Market Advantages
Massive Revenue Potential: With over 21 million residents, Florida is a high-value market with untapped iGaming opportunities.
Strong Betting Culture: Pari-mutuel wagering, casinos, and sports betting have deep roots in Florida’s gaming history.
Tourism-Fuelled Market: Over 120 million visitors annually create a dynamic betting audience, especially for mobile gaming.
Growing Demand for Online Gambling: The success of Hard Rock Bet proves that Florida players are eager for digital gaming options.
Established Gambling Framework: Regulated gaming sectors provide a foundation for potential iGaming expansion.
Potential for Future iGaming Expansion: Ongoing discussions about commercial iGaming suggest Florida could follow the example of other states with tribal interests.
Market Disadvantages
Tribal Exclusivity Barriers: The Seminole Tribe’s monopoly on sports betting makes market entry difficult for outside operators.
Uncertain Regulatory Future: Commercial iGaming remains blocked, and legislative shifts may take years to materialise.
Conclusion: Florida offers exceptional growth potential, but regulatory hurdles remain. For operators with long-term ambitions, it could be a high-risk, high-reward market worth monitoring.
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Disclaimer
This information is not intended to be legal advice and is solely extracted from open sources. It should not be relied upon as a substitute for professional legal advice, and Altenar does not accept any liability in relation to its use.
