A penalty shootout is the most dramatic way to settle a football match. It is used in knockout rounds of tournaments such as the World Cup and the European Championship when a game is still level after extra time. This guide explains the penalty shootout rules step by step, in simple language.
When Is a Penalty Shootout Used?
A shootout is only used when a match must have a winner. In a World Cup knockout match, the order is:
- 90 minutes of normal time
- If the score is level, 30 minutes of extra time (two halves of 15 minutes)
- If it is still level, a penalty shootout
Group-stage matches can end in a draw, so they never go to penalties. In the official Laws of the Game, the shootout is called “kicks from the penalty mark”. Goals scored in a shootout do not count as match goals, so they are not added to a player’s tournament total or the final score.
Penalty Shootout Rules Step by Step
1. The referee chooses the goal
The referee tosses a coin to decide which goal will be used. This can depend on safety, the pitch or which end has the most fans.
2. A second coin toss decides who goes first
The referee tosses a coin again. The captain who wins chooses whether their team kicks first or second.
3. Only players on the pitch at the end can take part
Only players who were on the field (or temporarily off it for an injury) at the end of extra time can take a kick. Substitutes who were not on the pitch cannot. If one team has more players than the other, for example after a red card, the bigger team must reduce its numbers so both sides have the same number of kickers.
4. Each team takes five kicks, one after the other
The teams take turns. If one team cannot catch up even with all its remaining kicks, the shootout ends early. For example, if a team leads 3–0 after three kicks each, the other team cannot reach three with only two kicks left, so the shootout is over.
5. Sudden death if it is still level
If the score is level after five kicks each, the shootout moves to sudden death. Each team takes one kick per round, and the first team to score when the other misses wins.
6. Every eligible player must kick before anyone goes twice
No player can take a second kick until every eligible player on their team, including the goalkeeper, has taken one. This is why goalkeepers sometimes take penalties in very long shootouts.
Rules for the Kicker and the Goalkeeper
- The ball is placed on the penalty mark, 11 metres (12 yards) from the goal line.
- The kicker must clearly be identified and must kick the ball forward.
- The kicker can use a stutter in the run-up, but cannot feint once the run-up is finished.
- The ball cannot be played a second time by the kicker, so there are no rebounds in a shootout.
- The goalkeeper must stay on the goal line, between the posts, until the ball is kicked, with at least part of one foot touching or level with the line.
- All other players stay in the centre circle, and the other goalkeeper waits on the goal line outside the penalty area.
If the goalkeeper moves off the line too early and saves the kick, the kick is retaken. If the kick is scored anyway, the goal stands. Video assistant referees can check these offences. Learn more about VAR in our offside rule and VAR guide.
Can a Goalkeeper Be Replaced During a Shootout?
Yes, but only in special cases. If a goalkeeper is injured and cannot continue, they can be replaced by a named substitute if the team has not used all of its permitted substitutions, or by another player who finished the match on the pitch.
A Short History of the Penalty Shootout
Before shootouts, drawn knockout matches were often decided by a replay or even by drawing lots. The shootout was added to the Laws of the Game in 1970. The first World Cup match decided on penalties was the 1982 semi-final, when West Germany beat France. Since then, shootouts have decided several World Cup finals, including 1994 (Brazil beat Italy), 2006 (Italy beat France) and 2022 (Argentina beat France).
Between 2017 and 2018, football’s lawmakers trialled an “ABBA” order, similar to a tennis tie-break, to reduce the advantage of kicking first. The trial was later stopped, and the traditional ABAB order is still used.
Penalty Shootouts at Upcoming Tournaments
Shootouts will again decide drawn knockout matches at the Euro 2028 finals in the UK and Ireland, and at the 2030 World Cup.
Penalty Shootout FAQs
How many penalties does each team take in a shootout?
Five each to start. If it is still level, it goes to sudden death, one kick per team per round.
Can the same player take two penalties in a shootout?
Only after every eligible teammate, including the goalkeeper, has taken one kick.
Do shootout goals count in the match score?
No. The match is recorded as a draw after extra time, and the shootout result decides who goes through.
Can a player who was substituted off take a penalty?
No. Only players on the pitch at the end of extra time are eligible.
