The Gambling Regulation and Growth in the Balkans

George Mamulaishvili, the head of the Georgian Gambling Association (GGA), presents a detailed overview of the state of gambling in the key countries of the Balkan Peninsula, including statistics, analysis of legal loopholes, and the benefits of industry legalization.

Albania

In February 2024, the Albanian Parliament adopted Law No. 18/2024, which lifted the five-year ban on sports betting introduced in 2019. According to the new law, the number of online sports betting licenses is limited to ten, and these licenses are granted through a competitive process. Companies must meet the following criteria:

• Be registered in Albania as a joint-stock company with a minimum capital of 40 million ALL (approximately €400,000).
• Have at least three years of experience in the gambling industry in at least three EU or OECD countries, or have a shareholder holding at least 30% of the company’s shares.
• Generated approximately €19.8 mln in gambling-related turnover in the previous financial year.

Market Statistics:

In 2025, gambling revenue in Albania is expected to reach USD 202.85 mln, with an expected compound annual growth rate (CAGR) of 3.43% from 2025 to 2029.

Legislative Issues:

• Corruption Risks: Despite the new measures, there are concerns about potential corruption risks in the licensing and regulatory process.

Benefits of Legalization:

• Increased State Revenue: Legalization is expected to generate an additional €17.5 mln in annual tax revenue.
• Combatting the Illegal Market: The reform aims to reduce the shadow economy and protect consumer rights.

Bulgaria

In May 2024, Bulgaria enacted amendments to the Gambling Act, introducing an almost complete ban on gambling advertising in the media and online platforms. Violations are subject to fines ranging from BGN 30,000 to 50,000 (from USD 17,500 to 29,000).

The law prohibits gambling advertisements on television, radio, print, and electronic media, including websites. The only exception is the broadcasting of the state sports lottery. Billboards are allowed, but only if they are located at least 300 meters from schools, kindergartens, and universities, and on gaming hall facades and sports facilities (excluding children’s areas). 

At least 10% of each advertisement must contain a warning about the risks of gambling addiction. Additionally, the law prohibits gambling machines and casinos in settlements with fewer than 10,000 residents, except for national resorts and border areas.

Although aimed at reducing the impact of gambling on society, especially on youth, media organizations and operators express concern that these restrictions could negatively affect their financial sustainability and lead to an increase in the use of unlicensed websites.

Market Statistics:

• In 2025, gambling revenue in Bulgaria is expected to reach USD 602.99 million, with a projected CAGR of 2.80% from 2025 to 2029.
• Online casinos represent a significant market share, generating BGN 1.1 billion (approx. €561 million) in revenues in 2023.

Legislative Issues:

• Advertising Loopholes: Despite the bans, some operators circumvent the restrictions by using public figures in promotional materials.

Benefits of Legalization:

• Increased Budget Revenue: In 2024, the gambling sector contributed BGN 200 million (approx. €102.3 million) to the state budget.
• Job Creation: The development of the industry contributes to employment growth in the country.

Serbia

The Serbian gambling market has shown significant growth, especially in the online segment. In 2024, the market revenue reached USD 142.9 million, with a CAGR of 5.41%.

Market Statistics:

• The Serbian gambling market is projected to reach USD 526.35 million in 2025, with an annual growth rate (CAGR) of 4.03% from 2025 to 2029, reaching USD 616.94 mln by 2029.

Legislative Issues:

• Access for Youth: The wide accessibility of online gambling raises concerns about youth involvement.
• Illegal Operators: Despite regulatory efforts, illegal operators remain a problem.

Benefits of Legalization:

• Economic Growth: Increased gambling revenue contributes to GDP growth and improves overall well-being.
• Investment Attraction: Transparent regulation attracts international investors and operators.

North Macedonia

In February 2024, the North Macedonian Parliament passed amendments to the gambling law prohibiting the placement of gambling facilities within 500 meters of schools. Operators have one year to relocate or close such facilities.

The reform aims to protect young people from the harmful effects of gambling. However, gambling operators and associations argue that these restrictions could lead to job losses and an increase in illegal gambling.

The amendments also include increased licensing fees:

• The fee for totalizators rose from €105,000 to €200,000.
• For slot machine clubs, the fee increased from €78,750 to €100,000, with an additional €30,000 required for each new location.
• Operators are limited to 25 betting points, and each additional point requires a €10,000 fee.