Republic of the Philippines
HOUSE OF REPRESENTATIVES
Quezon City

TWENTIETH CONGRESS
First Regular Session

HOUSE BILLNO.___237

Introduced by REPRESENTATIVE AUDREY KAY T. ZUBIRI

AN ACT
REGULATING ONLINE GAMBLING ADVERTISEMENTS AND LI
TO ONLINE GAMBLING SITES IN THE PHILIPPINES

EXPLANATORY NOTE

Online gambling addiction among minors has become a pressing concem in recent years.
Reports revealed that individuals—including children aged 17 and below—are spending
thousands, even hundreds of thousands, of pesos on online betting platforms. In a news report,
it was even disclosed that minors can easily conceal their identities and log-in to online betting.
sites, with one saying, “Sa online, madali lang. Madali lang ang pekehen kung sino ka, kung

saan ka or kung ilang taon ka na.”'

T
identity verification systems of online platforms. The lapses on the implementation of rules and

issue is further exacerbated by rapid technological advancements and the lax

regulations of such institutions allow users, particularly minors, to easily fake their personal
information, granting them unrestricted access to gambling websites and applications.
Consequently, children are prematurely exposed to the societal ill of addiction.

Psychologists and behavioral experts have raised concerns over what they consider a
“silent epidemic” of gambling addiction among the youth?. Some cases have documented
minors incurring debts amounting to hundreds of thousands of pesos due to unregulated online

gambling access.

‘News Article from —Rappler Philippines, November 16. 2024 by Aya—-Ranas,
bhutps://wwwrappler.comvphilippines/online-betting-sites-push-youth-gambling-ddiction!
* http://www: oakpark.com/2025/06/17/gambling-the-silent-epidemic/


Although the Philippine Amusement and Gaming Corporation (PAGCOR) prohibits
gambling advertisements targeting individuals aged 21 and below. enforcement remains weak.
This is particularly truc on digital platforms, where advertisements promoting online gambling

are widespread and easily accessible to minors.

Moreover, the lack of regulation for linking e-wallet applications such as GCash and
PayMaya to online gambling sites exacerbates the situation. These platforms often include built-
in features that facilitate online gambling access. As a result, minors can easily circumvent age

restrictions and engage in gambling using these platforms.

This proposed measure seeks to regulate the widespread advertisement of online
gambling through stricter compliance requirements for gambling operators, advertising
companies and platforms and e-wallet service providers. It aims to promote transparency and
accountability in online gambling advertisements and access to their websites, particularly to

protect minors from exposure and participation in online gambling activities.

This measure is grounded in the State's Constitutional mandate to protect our youth as
enshrined in Section 13, Article II of the 1987 Constitution which states, “The State recognizes
the vital role of the youth in nation-building and shall promote and protect their physical, moral,
spiritual, intellectual, and social well-being. It shall inculcate in the youth patriotism and
nationalism, and encourage their involvement in public and civic affairs.” We strongly believe
that without immediate and concrete legislative intervention, the issue will continue to worsen

and affect more Filipino youth.

In view of the foregoing, the urgent passage of this bill is carnestly sought.
~ fen Z

AUDREY KAY T. ZUBIRI
Representative, 3" District of Bukidnon


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Republic of the Philippines
HOUSE OF REPRESENTATIVES
Quezon City

TWENTIETH CONGRESS
First Regular Session

237

HOUSE BILL NO,

Introduced by REPRESENTATIVE AUDREY KAY T. ZUBIRI

AN ACT
REGULATING ONLINE GAMBLING ADVERTISEMENTS AND LIMITING ACCESS
TO ONLINE GAMBLING SITES IN THE PHILIPPINES

Be it enacted by the Senate and the House of Representatives of the Philippines in Congress
assembled:

SECTION 1. Short Title. — This Act shall be known as the “Electronic Gambling Access
Prevention Act of 2025” or the “E-GAP Ac

SEC. 2. Declaration of Policy. — It is the policy of the State to protect the moral,
psychological, and emotional development of its citizens, especially children and vulnerable
sectors, from the effects of unregulated online gambling and its advertisements. The State
recognizes the need to regulate the dissemination of online gambling content and to establish

stringent access controls to prevent minors from engaging in gambling activities.

SEC. 3. Definition of Terms. — For purposes of this Act:

a, Internet refers to an international computer network of interoperable packet-switched
data networks. It includes the electronic medium in which online communication takes
place.

b. Online gambling refers to any form of placing, receiving, or otherwise knowingly
transmitting a bet or wager by any means which involves the use, in whole or in part, of

the internet.

Gambling Operator refers to any person, entity, or company authorized to offer online
gambling services.
d. Advertisement refers to any visual and/or audible message or post generated, sent,

received, or disseminated to the public about or on a particular product that promote or


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give publicity by words, designs, images, or any other means through broadcasts,
electronic, optical, print, or whatever form of mass or social media, including indoor and
outdoor advertisements, such as but not limited to signs and billboards.

Advertising refers to the business of conceptualizing, prescnting, making available, and
communicating to the public, through any forms of mass or social media, including
documentaries and testimonials, any fact, data, or information about the attributes,
features, quality, or availability of consumer products, services, or credit.

Internet Service Providers or ISPs — refers to

1. Any public or private entity that provides to users of its service the

y to
communicate by means of a computer system; and
2. Any other entity that processes or stores computer data on behalf of such
communication service or its users
Digital platforms refer to information and communication technology-enabled
mechanisms that connect and integrate producers and users in online environments
where goods and services are requested, developed, and sold, and data is generated and
exchanged such as, but not limited to, e-marketplace, mobile application platforms,
online delivery platforms, social media platforms, and travel platforms;
Advertising technology or ad tech companies refer to any natural or juridical person that
develops, operates, or provides digital systems, platforms, software, or services designed
to facilitate, automate, manage, target, deliver, measure, or optimize online advertising
content, For the purpose of this Act, such companies shall be deemed to have participated
in the publication or dissemination of online gambling advertisements if their technology,
tools, or services are used in the targeting, placement, or amplification of advertisements
related to gambling, gaming, or wagering, whether directly or indirectly.

Electronic wallet (e-wallet) service provider refers to an entity that provides electronic

money issuance or digital wallet services by storing monetary value electronically in an

instrument or device, making it widely acceptable for payments and withdrawable in

cash or cash equivalent, and which is registered or licensed by the Bangko Sentral ng
Pilipinas (BSP) as an Electronic Money Issuer or Operator of a Payment System.
Know Your Customer (KYC) refers to the process of verifying the identity of users before
granting them access to online gambling platforms.

Young individual refers to any person below twenty-one (2!) years old.

SEC. 4. Prohibited Media and Venues for Online Gumbling Advertisements. —

Notwithstanding any other provision of law, all forms of direct or indirect advertisements,


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promotions, sponsorships, and marketing materials related to online gambling, whether in
digital, print, audio, or visual format, shall be strictly prohibited on the following platforms and

venues:

a. Free-to-air and cable television programs, including but not limited to live
broadcasts, pre-recorded segments, and sponsored content, regardless of the
broadcast time;

b. Radio broadcasts, whether on AM, FM, digital, or satellite radio, including paid
segments, promotional plugs, or subliminal advertising;

cc. Print publications that are primarily directed toward minors, including but not limited
to youth magazines, comic books, educational newsletters, and school newspapers;

d. Public spaces that are immediately accessible to minors such as but not limited to
public transportation vehicles, streets and alleys, public parks, schools, buildings,
malls, bars, restaurants, transportation terminals, public markets, spaces used as
evacuation centers, government offices, public utility vehicles as well as private

vehicles covered by app-based transport network services and other recreational

spaces such as, but not limited to, cinema halls, and theaters:
¢. Streaming services, mobile applications, or e-wallet applications; and

£. Public educational institutions, including primary, secondary, and tertiary schools, as

well as school-sponsored events, such as academic fairs, sporting events, training

camps, and student conventions, whether held on-campus or in public venues.

Any gambling operator, media provider, advertising agency, or other entity found in

violation of this provision shall be subject to the penalties outlined under Section 10 of this Act.

To safeguard the welfare of children and young individuals from exposure to harmful and
exploitative content or undue influence by public figure endorsements, any individual or team
athletes, artists, performers, influencers, and health professionals are likewise prohibited from
accepting sponsorships, endorsing, posting, or promoting online gambling, which includes the
mention or tagging through social media, of the names or online gambling applications. All
persons receiving remuneration, in whatever form, for promoting or encouraging the use of

online gambling shall also be covered by the ban under this Section

SEC. 5. Content Restrictions on Online Gambling Advertisements. - To ensure the

responsible marketing of online gambling and to protect vulnerable sectors, particularly minors


and young adults, all online gambling advertisements shall adhere to the following content
standards:

a. Prohibition on Misleading Clair

— Advertisements shall not misrepresent or
exaggerate the chances of winning, the predictability of outcomes, or the potential

financial returns associated with gambling activities. All promotional content must

clearly communicate that gambling involves financial risk and is not a guaranteed
means of income or profit.

b. Age-Appropriate Representation — No individual who is below twenty-one (21) years
of age shall be featured, depicted, or portrayed engaging in gambling-related
activities in any form of advertisement, whether real, animated, or digitally created.

c. Ban on Child-Oriented Imagery ~ Advertisements shall not use visuals, characters,
sound effects, music, or themes that are typically associated with children’s
programming, toys, games, or entertainment. This includes, but is not limited to,
cartoon characters, nursery music, and youth-centric sling or memes.

4. Prohibition Against Irresponsible Messaging — Online gambling shall not be
portrayed as a viable solution to financial hardship, emotional distress, social anxiety,
or any personal problems, Advertisements suggesting gambling as a form of
escapism or financial rescue are strictly prohibited.

€. No Association with Success or Social Prestige - Advertisements shall not depict
gambling as a mark of maturity, success, popularity. or enhanced social status.
Gambling must not be framed as a rite of passage or a symbol of achievement or
lifestyle aspiration.

£. Display of Disclaimer — All advertisements must include a visible and prominently
display a disclaimer stating: “This platform is strictly for users twenty-one (21) years

old and above. Play responsibly.”

Violations of this Section shall be subject to regulatory action, including the imposition
of administrative penalties and potential revocation of advertising permits, as prescribed under
Section 10 of this Act.

SEC. 6. Obligations of Internet Service Providers, Mobile Network Operators. and
Digital Platforms. - To ensure effective implementation of this Act and limit public access to

unauthorized online gambling content, all Internet Service Providers (ISPs), mobile


1 telecommunications providers, digital applications, and similar platforms operating within the

2 Philippines shall have the following obligations:
3
4 a. Website Blocking — ISPs and mobile providers shall, upon order of the Philippine
5 Amusement and Gaming Corporation (PAGCOR) or the Department of Justice —
6 Office of Cybercrime (DOJ-OOC), block access to all unlicensed, unauthorized, or
1 foreign-based online gambling websites and platforms operating in violation of this
8 Act or existing laws.
9 b. Application Removal — Digital application distribution platforms, including
10 application stores and mobile marketplaces, shall immediately remove or disable
u access to all gambling-related applications that do not possess valid and current
12 permits issued by PAGCOR and other relevant regulatory agencies.
13 ¢. Mandatory Response Period ~ All take-down, blocking, or removal requests issued
14 by PAGCOR or the DOJ-OOC shall be acted upon within seventy-two (72) hours
15 from official receipt, Failure to comply within this period shall constitute a violation
16 subject to enforcement under Section 10 this Act.
7 d. Reporting and Compliance Mechanism ~ All covered entities shall maintain a
18 mechanism for regular reporting to PAGCOR detailing the number of blocked
19 websites, removed applications, and pending takedown requests. Such reports shall
20 be submitted on a quarterly basis or as required under the implementing rules and
21 regulations.
2 ©. Penalties for Non-Compliance ~ Failure to comply with the obligations under this
23 Section may result in administrative penalties including fines, suspension of licenses,
24 and, where applicable, revocation of authority to operate digital or
25 telecommunication services in the Philippines.
26

27 SEC. 7. Responsibilities of Ad Tech Companies and Digital Platforms. - To strengthen
28 the regulation of online gambling advertisements and ensure accountability in digital
29 advertisement distribution, all advertising technology companies and digital advertising
30 platforms operating within or targeting users in the Philippines shall comply with the following

31 obligations:

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33 a. Mandatory Compliance Audits ~ All covered entities shall conduct quarterly internal
34 audits of their ad delivery systems to ensure compliance with this Act and other

35 applicable gambling advertising restrictions. The results of such audits shall be made


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available to PAGCOR, the National Telecommunications Commission (NTC), and
other relevant regulatory bodies upon request.

b. Ad Serving Transparency and Recordkeeping — Platforms shall maintain real-time,
accessible records of all gambling-related advertisements served through their
networks. These records shall include information on:

() The identity of the gambling operator or advertiser;
(ii) The platform, application, or website on which the ad appeared;
(iii) Targeting parameters, including age filters and demographics;

(iv) Duration and frequency of the ad campaign.

Such records shall be preserved for a minimum of two (2) years and shall be accessible

to regulators for inspection, compliance monitoring, or investigation.

c. Prohibition on Circumvention of Age-Gating — No advertising technology provider
or programmatic platform shall knowingly develop, enable, or support technologies,
mechanisms, or practices that bypass, disable, or manipulate age-verification systems
or other measures designed to restrict exposure of gambling advertisements to minors

and vulnerable users.

SEC. 8. Access Control and Age Verification. — To ensure that minors and vulnerable
users have restricted access to online gambling, operators thereof shall strictly adhere to the

following:

a. Online gambling operators must implement a robust Know Your Customer procedure
that shall include:

1, Submission of a government-issued valid ID;
2. Live photograph or video verification of the user;
3. Age verification ensuring the user is 21 years old and above.

b. No user shall be allowed to create or maintain an account for online gambling services
without completing the KYC verification,

c. Digital and e-wallet service providers must:
(i) Block access to gambling content for unverified users and users under the age of

twenty-one (21); and


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(ii) Disable integration with gambling features unless proper age and identity
verification is in place.

. Online platforms and e-wallet services integrated with gambling applications shall also

be mandated to prevent access to gambling content by unverified users or users under

the age of twenty-one (21).

SEC. 9. Permits. — All online gambling related advertisements shall be subject to prior
permits from the PAGCOR, Games and Amusement Board (GAB), the Movie and Television
Review and Classification Board (MTRCB);

The permit to advertise shall be issued on a per platform and per location basis and shall
be reviewed by the PAGCOR annually.

SEC. 10. Penalties. —
a. Any person, entity, or online gambling operator found violating any provision of

Sections 4, 5, 6, and 8, of this Act shall be subject to the following penaltics to be
imposed by the PAGCOR after due notice and hearing:

a. First Offense — a fine of not less than Twenty Million Pesos
(Php20,000,000.00) and suspension of license for six (6) months;
b. Second Offense — a fine of not less than Fifty Million Pesos

(50,000,000.00) or a suspension of license tor one (1) year; and
©. Third and Succeeding Offenses ~ a fine of not less than One Hundred
Million Pesos (Php100,000,000.00) and permanent revocation of its

permit to operate.

The continued or willful violation of the foregoing may subject the offender to

criminal prosecution under existing laws.

b. Any person or entity found violating any provision of Section 7 of this Act shall be
subject to the following penalties which may be imposed simultaneously by the NTC

after due notice and hearing:


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a. a fine of not less than Ten Million Pesos (Php10,000,000.00) for each
instance of deliberate circumvention or willful non-compliance;

b. Temporary or permanent suspension from operating within Philippine
digital advertising markets; and

c. Additional sanctions as may be imposed by PAGCOR, or the Department

of Information and Communications Technology (DICT).

SEC. 11. PAGCOR as Lead Agency. - PAGCOR shall be the lead agency to effectively
implement the provisions and purposes of this Act. Further, to complement regulatory efforts
and mitigate the social and psychological harms of gambling, PAGCOR, in coordination with
the Department of Education (DepEd), the Department of Health (DOH), and the Department of
Social Welfare and Development (DSWD), shall implement the following programs:

a. National Information and Awareness Campaigns — PAGCOR shall lead annual
nationwide information campaigns focused on the risks of gambling addiction,
particularly among minors and vulnerable populations. These campaigns shall utilize
print, broadcast, and digital media, including social media platforms, to educate the
public on the warning signs of gambling problems and promote responsible gambling
behaviors.

b. Curriculum Integration and Digital Literacy ~The DepEd, in consultation with PAGCOR
and relevant stakeholders, shall develop and integrate age-appropriate digital literacy
modules into the K-12 curriculum. These modules shall include content on the nature
and risks of gambling, media and advertising literacy, and healthy online behaviors.

c. Community-Based Counseling and Support Services — The DOH and the DSWD, in
partnership with local government units (LGUs), shall establish and operate community-
level hotlines, help centers, and referral systems for individuals and families affected by
gambling addiction. These services shall be staffed by trained professionals and
accessible free of charge to the public.

d. Program Funding and Monitoring - PAGCOR shall allocate a portion of its annual gross
revenues to support the development, implementation, and monitoring of the above-
‘mentioned programs. An annual report on the status, reach, and impact of these initiatives
shall be submitted to Congress by PAGCOR.

SEC. 12. Implementing Rules and Regulations. - The Philippine Amusement and

Gaming Corporation (PAGCOR), in coordination with the Department of Information and


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Communications Technology (DICT), and the Department of Justice (DOJ), shall formulate and
issue the necessary implementing rules and regulations within ninety (90) days from the

effectivity of this Act.

SEC. 13. Separability Clause. — If any provision of this Act shall be declared
‘unconstitutional or invalid, the other provisions not otherwise affected shall remain in full force

and effect.
SEC. 15. Repealing Clause. — All other laws, decrees, executive orders, proclamations,
rules and regulations, and other issuances or parts thereof that are inconsistent with the

provisions of this Act are hereby repealed or amended, accordingly.

SEC. 14. Effectivity. - This Act shall take effect fifteen (15) days after its publication in

the Official Gazette or in a newspaper of general circulation.

Approved,