PAGCOR Casino License: Greenfield Zone and Fiesta Casino Rules Explained
Understand PAGCOR casino license rules for Greenfield Zone and Fiesta Casino licensees, including the regulatory manuals that govern each regime.
PAGCOR regulates casino operations in the Philippines through license-specific regulatory manuals. Two distinct regimes are covered by separate manuals: the Casino Regulatory Manual for Greenfield Zone Licensees (Version 1.0, October 2021) and the Casino Regulatory Manual for Fiesta Casino Licensees (Version 2.0, January 2016). Each manual is read together with the licensee's Provisional License and Gaming License (for Greenfield Zone) or Provisional License and Authority to Operate (for Fiesta Casino). Both manuals contain the same core regulations — from casino layout and gaming tables to surveillance, license fees, and responsible gaming — but each is tailored to its license category.
What is a Greenfield Zone casino license?
A Greenfield Zone casino license is governed by the Casino Regulatory Manual for Greenfield Zone Licensees, Version 1.0, issued in October 2021. The manual was patterned after the Casino Regulatory Manual for Clark SEZ Licensees Version 2.0 previously issued by PAGCOR.
The manual states that it "shall be read in conjunction with and is intended to supplement the Provisional License and Gaming License," and remains subject to continuous review and to changes, revisions, modifications, or amendments by PAGCOR.
This means the license terms themselves, not the manual alone, define the licensee's obligations. The manual supplies the operating standards — casino layout, gaming tables, electronic gaming machines, surveillance, and the like — that apply on top of the license.
What is a Fiesta Casino license?
A Fiesta Casino license is governed by the Casino Regulatory Manual for Fiesta Casino Licensees, Version 2.0, issued in January 2016. Unlike the Greenfield Zone manual, this manual "shall be read in conjunction with and is intended to supplement the Provisional License and Authority to Operate."
The Fiesta Casino manual was compiled by the Gaming Licensing and Development Department, with template forms prepared by the Compliance Monitoring and Enforcement Department. It covers the same broad regulatory areas as the Greenfield Zone manual but reflects the older licensing framework applicable to Fiesta Casino operators.
What do both manuals regulate?
Both manuals follow the same structural outline. The regulations cover:
- Casino layout — maximum gaming area, designation of gaming areas, gaming mix ratios, and submission of casino layout plans
- Gaming tables — new or additional tables, relocation, mix ratios, table limits, and authorized casino table games
- Electronic gaming machines — technical standards, minimum return-to-player percentage, odds and payouts, and linked jackpots
- Peripheral gaming equipment — card shoes, shufflers, dice, money wheels, and roulette wheels
- Casino Management System — components, pre-operational requirements, version upgrades, and remote access
- Surveillance — surveillance plans, minimum coverage requirements, and recording retention
- Gaming chips, plaques, and playing cards — approval, specifications, inventory, and storage
- Procurement and movement of gaming equipment — foreign procurement, local purchase, and transfer rules
- Casino operations — operating hours, opening and closing of tables, drop box procedures, and conduct of table games
- Advertising, marketing, and player incentives — including rebates and rolling commission programs
- Junket operations and chipwashing — junket agreements, player databases, and junket runners
- Banned personalities — restrictions on entry to gaming areas
- Gross gaming revenue and license fees — determination of GGR and PAGCOR license fees for both tables and electronic gaming machines
- Patron disputes — resolution procedures and the Patron Dispute Committee
- Prescribed offenses and disciplinary proceedings — regulatory sanctions and their levels
- Responsible gaming, Gaming Employment License, and the PAGCOR Monitoring Team
- Prevention of money laundering
- Ancillary games — bingo (in-venue and via CCTV/computer links), and for Fiesta Casino licensees, sports betting
- Cruise ship casino — covered in the Fiesta Casino manual
How does PAGCOR enforce compliance?
Both manuals establish a PAGCOR Monitoring Team with defined functions, access to casino premises, and the right to require records. The team may stop the game or casino operations until corrective action is taken in specified circumstances.
Regulation 26 of both manuals addresses prescribed offenses and the procedure for imposing regulatory sanctions, including standards and levels of sanctions, late payment, and failure to pay. Regulation 27 covers disciplinary proceedings.
PAGCOR's stated regulatory objectives, set out in the foreword of both manuals, include ensuring a level playing field among industry proponents, maintaining an orderly and predictable regulatory environment, enforcing license terms and conditions, promoting fairness and integrity in the conduct of games, providing an underlying platform for responsible gambling, disallowing access to gaming venues by minors and financially vulnerable persons, and preventing licensed gaming venues from being used for illegal activities.
Frequently asked questions
What is the difference between a Greenfield Zone license and a Fiesta Casino license?
They are governed by separate PAGCOR regulatory manuals. The Greenfield Zone manual is Version 1.0 (October 2021) and supplements the Provisional License and Gaming License. The Fiesta Casino manual is Version 2.0 (January 2016) and supplements the Provisional License and Authority to Operate.
Does the Greenfield Zone manual apply to Fiesta Casino licensees?
No. Each manual applies to its own license category. The Greenfield Zone manual was patterned after the Clark SEZ Licensees manual, while the Fiesta Casino manual reflects the framework for Fiesta Casino operators.
What fees does PAGCOR collect from casino licensees?
Both manuals contain regulations on the determination of gross gaming revenues and PAGCOR license fees for gaming tables and electronic gaming machines, as well as collection and remittance procedures. The specific rates are set out in the applicable regulation of each manual.
Practical takeaways
- PAGCOR maintains separate regulatory manuals for Greenfield Zone licensees (Version 1.0, October 2021) and Fiesta Casino licensees (Version 2.0, January 2016).
- Each manual supplements the licensee's Provisional License and either a Gaming License (Greenfield Zone) or an Authority to Operate (Fiesta Casino).
- Both manuals cover the same core areas: casino layout, gaming tables, electronic gaming machines, surveillance, license fees, patron disputes, and regulatory sanctions.
- The Fiesta Casino manual additionally covers sports betting and cruise ship casinos as ancillary or related operations.
- PAGCOR may amend either manual from time to time, so licensees must track the current version applicable to their license.
Primary sources
The rules discussed above are drawn from the following PAGCOR issuances, embedded here in full for your reference.
Casino Regulatory Manual for Greenfield Zone Version 1.0Open in Law LibraryDownload PDF
Casino Regulatory Manual for Fiesta Casino Licensees Version 2.0Open in Law LibraryDownload PDF
This article is general information and not legal advice. For your specific situation, consult a lawyer or ask ASG Legal AI.
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