Is Gambling Legal in Montenegro? Laws & Regulations Explained 2025

Key Information

Last Update 2025

Regulatory Authority Games of Chance Administration (Uprava za igre na sreću)

License Cost Varies

Regulation by Activity Type

Casinos Regulated

Online Casinos Regulated

Betting Regulated

Online Betting Regulated

Lotteries Regulated

Poker Regulated

Highlights

The Games of Chance Act is the primary legislation regulating all forms of gambling in Montenegro.
Licenses for most gambling activities are granted upon request, but casino and lottery concessions require a competitive tender.
Montenegro permits both land-based and online gambling, with no special distinction in legal definitions.
From January 2025, gambling winnings above EUR 300 are subject to a 15% personal income tax.
Recent reforms focus on stricter advertising rules, mandatory player identification, and youth protection measures.
New regulations ban certain electronic payment methods like Apple Pay and PayPal for gambling transactions.
The government is actively consulting stakeholders to modernize laws, aiming for fair competition and responsible gambling.

Legislation

Primary Legislation

The core legal framework governing gambling in Montenegro is established by the Games of Chance Act (Zakon o igrama na sreću). This Act, as published in the Official Gazette of Montenegro (Nos. 052/04, 013/07, 073/10, 040/11, 061/13, 037/17, 003/23, and 125/23), serves as the principal legislation regulating all forms of games of chance in the country. The law provides a comprehensive definition of games of chance, encompassing both land-based and online gambling activities, and applies to all common types of gambling, including casino games, sports betting, and lotteries. The Act outlines the general legal requirements for organizing and conducting games of chance, as well as the obligations for operators and the scope of permissible gambling activities. In addition to the current Act, Montenegro is in the process of modernizing its gambling legislation. The Ministry of Finance has initiated a comprehensive review and stakeholder consultation to develop a new legal framework aimed at fostering a safe and responsible gambling environment. The forthcoming legislation is expected to introduce updated measures for player protection, advertising restrictions, and regulatory enforcement, representing the first major overhaul of Montenegro’s gambling laws in two decades.

Regulatory Authority

Oversight and enforcement of gambling legislation in Montenegro are the responsibility of the Ministry of Finance. This authority is tasked with implementing the Games of Chance Act, drafting new regulations, and ensuring compliance across the gambling sector. The Ministry coordinates with various stakeholders, including government bodies, local communities, and industry representatives, to shape and enforce gambling policy.

Drafts and updates gambling legislation and regulatory acts
Supervises and enforces compliance with gambling laws
Consults with stakeholders to develop responsible gambling measures
Implements player protection and anti-financial crime measures

License Types

Types of Gambling Licenses in Montenegro

Casino License: Issued via a competitive tender process. Only a limited number of casino licenses are available, and applicants must participate in a public bidding process to obtain one.
Lottery License: Restricted to a single operator, also awarded through a competitive tender. Only one national lottery license is granted at a time.
Other Games of Chance Licenses: Includes betting (sports and horse racing), slot machine clubs, bingo, and online gambling. These licenses are typically granted upon request, provided the applicant meets all regulatory requirements.
Online Gambling License: Covers a range of online games of chance, including casino games, betting, and other permitted formats. Online licenses are available upon application and compliance with regulatory standards.

Application Process and Duration

Application Submission: Operators must submit a detailed application to the competent regulatory authority, providing all required documentation, business plans, and proof of compliance with technical and financial standards.
Casino and Lottery Licenses: Awarded through public tenders. The process involves submitting bids that are evaluated based on pre-defined criteria, including investment commitments and operational plans.
Other Licenses: Applications are considered on a rolling basis. The authority reviews the applicant’s suitability, financial stability, and technical capacity.
Duration: Licenses are typically granted for a fixed period, often five years, with the possibility of renewal upon meeting ongoing compliance and financial requirements.
Renewal Conditions: License renewal requires continued compliance with all regulatory obligations, timely payment of fees, and demonstration of responsible gaming practices.

Licensing Costs and Financial Requirements

Application Fees: A non-refundable application fee is required for all license types. The fee amount varies depending on the type of license sought (e.g., higher for casinos and lotteries, lower for betting and slot clubs).
Annual License Fees: Operators must pay annual fees to maintain their licenses. These fees are set by the regulator and differ by activity (casinos, betting, online, etc.).
Financial Guarantees: Applicants are required to provide financial guarantees or bank bonds to ensure compliance with regulatory obligations and to protect player funds.
Minimum Capital Requirements: There are minimum capital thresholds that must be met, particularly for casino and online gambling operators. The specific amounts are determined by the regulator and may be updated periodically.

Key Requirements for Obtaining and Maintaining Licenses

Corporate Structure: The applicant must be a registered legal entity in Montenegro or have a recognized legal presence in the country.
Fit and Proper Test: All key persons and shareholders must pass background checks to ensure integrity and suitability. Criminal records and previous regulatory breaches are grounds for rejection.
Technical Standards: Gaming systems, software, and equipment must meet strict technical and security standards, including certification by approved testing laboratories.
Responsible Gambling Measures: Operators must implement measures to prevent underage gambling, promote responsible play, and provide self-exclusion options for players.
Reporting and Compliance: Regular reporting to the regulator is mandatory, including financial statements, player protection measures, and anti-money laundering (AML) compliance.
On-Site Inspections: The regulator has the authority to conduct inspections and audits to verify compliance at any time.
Player Identification: Both land-based and online operators are required to verify the identity of players to ensure compliance with age and AML regulations.

Summary Table: Licensing System Overview

License Type	Application Method	Duration	Fees	Key Requirements
Casino	Public Tender	5 years (renewable)	High application & annual fees; financial guarantees	Capital, technical standards, fit & proper, responsible gaming
Lottery	Public Tender (single operator)	5 years (renewable)	Very high; exclusive rights	Capital, exclusivity, technical standards
Betting, Slot Clubs, Bingo	Direct Application	5 years (renewable)	Moderate to high; annual fees	Technical, financial, fit & proper
Online Gambling	Direct Application	5 years (renewable)	Variable; annual fees, guarantees	Technical certification, AML, player ID

Gambling Tax

Tax Rates for Gambling Operators in Montenegro

Gambling operators in Montenegro are subject to a structured taxation system that varies depending on the type of gambling activity. The main forms of gambling include casinos, sports betting, lotteries, and online gambling. The tax regime is primarily based on either Gross Gaming Revenue (GGR) or turnover, depending on the specific gambling vertical.

Type of Gambling	Tax Basis	Tax Rate
Casinos (land-based and online)	Gross Gaming Revenue (GGR)	10%
Sports Betting (land-based and online)	Gross Gaming Revenue (GGR)	10%
Lotteries	Turnover	10%
Slot Machines	Monthly fixed fee per machine	EUR 50 per machine

Basis for Taxation

For casinos and sports betting (both land-based and online), taxes are calculated on the operator’s Gross Gaming Revenue (GGR), which is the difference between the total amount wagered and the winnings paid out to players.
Lotteries are taxed on turnover, meaning the total amount of stakes collected.
Slot machines are subject to a fixed monthly fee per device, regardless of actual revenue.

Tax Reporting and Payment Requirements

Operators are required to submit regular tax returns, typically on a monthly basis, detailing their GGR or turnover, depending on the gambling vertical.
Tax payments must be made monthly, generally by the 15th day of the following month for the previous month’s activity.
Detailed records of all transactions, wagers, payouts, and GGR calculations must be maintained and made available for inspection by the tax authorities.
Operators are subject to audits by the relevant regulatory and tax authorities to ensure compliance with tax obligations.

Tax Incentives, Exemptions, and Special Provisions

No broad tax incentives or exemptions are currently available for gambling operators in Montenegro.
Winnings up to EUR 300 are exempt from personal income tax for players; however, this does not affect operator taxation.
There are no special reduced rates or holidays for new market entrants or specific types of gambling beyond the standard regime.

The Montenegrin government is currently reviewing and modernizing its gambling laws, but as of the latest information, the above tax structure and requirements remain in effect.

Prohibited Individuals

Age Restrictions and Identification Requirements

The minimum legal age for participating in gambling activities in Montenegro is 18 years.
Operators are required to implement robust age verification processes to prevent minors from accessing gambling services, both online and in land-based venues.
Identification checks must be conducted before allowing entry to gambling venues or registration for online gambling accounts, ensuring all players meet the age requirement.

Prohibited Activities and Game Restrictions

Montenegro generally permits most common types of games of chance, including casino games, sports betting, and online gambling.
The total number of land-based casinos is capped at eight across the country.
There are no specific prohibitions on particular types of games of chance, but only one operator is allowed to run the national lottery.
Foreign-based gambling advertisements are prohibited, effectively restricting access to unlicensed or unauthorized gambling services.

Advertising and Marketing Limitations

Advertising of gambling services is subject to strict rules to protect vulnerable populations, including minors and self-excluded individuals.
Marketing campaigns must not target minors or other vulnerable groups.
Foreign gambling advertisements are not allowed within Montenegro.
All advertising materials must include responsible gambling messages and information about support resources.

Responsible Gambling Requirements and Player Protection Measures

Operators must provide self-exclusion programs, allowing players to voluntarily ban themselves from gambling for a specified period.
Limits on betting amounts and losses can be set by players, and operators must provide mechanisms to support these limits.
Information about responsible gambling, including risks and support services, must be clearly available at gambling venues and on operator websites.
Operators are required to safeguard player data and ensure secure payment processing to protect against fraud and misuse.
Regular monitoring and compliance checks are conducted by the regulatory authority to ensure adherence to player protection standards.

Geographic and Location Restrictions

The number of physical casino venues is strictly limited to eight, and these are typically located in populous or tourist areas such as hotels.
Online gambling operators must comply with Montenegrin regulations for all players accessing their services from within Montenegro.
Gambling venues must be situated in approved locations as determined by regulatory authorities, with additional restrictions possible in the future to address public concerns or urban planning requirements.

Timeline

Year/Date	Event
2004	Adoption of the Games of Chance Act, establishing the primary legal framework for gambling regulation in Montenegro.
2007	First significant amendment to the Games of Chance Act, updating regulatory provisions.
2010	Further amendment to the Games of Chance Act, addressing evolving industry practices.
2011	Additional updates to the Games of Chance Act to refine regulatory oversight.
2013	Amendments introduced to strengthen control mechanisms and align with international standards.
2017	Further revisions to the Games of Chance Act, reflecting changes in the gambling market and regulatory approach.
2023	Latest amendments to the Games of Chance Act, signaling ongoing modernization efforts.
October 2024	Launch of a public consultation process for a comprehensive overhaul of gambling legislation, marking the first major update in 20 years.
2025 (expected)	Planned adoption of a new Law on Gambling to establish a modern, responsible, and safer regulatory framework, with enhanced protections for youth and new operational requirements for operators.

Requirements

Software Certification and Technical Standards

All gambling software used by operators must be certified by an independent, accredited testing laboratory to ensure fairness, randomness, and compliance with technical standards.
Technical standards require that all gaming systems, including random number generators (RNGs) and game logic, undergo regular testing and certification to prevent manipulation and guarantee integrity.
Operators must implement secure communication protocols (such as SSL/TLS) to protect the transmission of sensitive data between players and servers.
Gaming platforms must have robust monitoring systems in place to detect and report technical anomalies or unauthorized access attempts in real time.
Any software updates or changes to the gaming system must be documented and, where material, re-certified before deployment.

Data Protection, Privacy Measures, and Server Location

Operators are required to comply with national data protection laws and align with EU GDPR standards, ensuring the confidentiality and security of player data.
Personal and financial data must be stored on secure servers, with access restricted to authorized personnel only.
Operators must implement encryption for data at rest and in transit to prevent unauthorized disclosure or breaches.
There are requirements for physical server location: gaming servers must be located within Montenegro or in jurisdictions approved by the regulator to ensure regulatory oversight and data integrity.
Operators must have clear data retention and deletion policies, ensuring player data is only kept as long as necessary for regulatory and operational purposes.

Anti-Money Laundering (AML) and Know Your Customer (KYC) Procedures

Operators must implement robust AML procedures, including customer due diligence (CDD) and enhanced due diligence (EDD) for high-risk transactions or players.
KYC verification is mandatory for all players, requiring operators to verify identity, age, and source of funds before allowing participation in gambling activities.
Operators must monitor transactions for suspicious activities and promptly report any suspected money laundering or terrorist financing to the relevant authorities.
Automated systems must be in place to flag unusual betting patterns, large transactions, or rapid deposit/withdrawal cycles for further investigation.
All AML and KYC processes must be documented, with regular staff training and system audits to ensure ongoing compliance.

Financial Reporting, Auditing Standards, and Record-Keeping

Operators are required to maintain accurate and up-to-date financial records, including detailed logs of all player transactions, bets, wins, and payouts.
Annual financial statements must be prepared in accordance with recognized accounting standards and submitted to the regulator for review.
Operators must undergo regular independent audits, covering both financial operations and technical systems, to verify compliance with regulatory requirements.
Records related to player activity, financial transactions, and AML/KYC checks must be retained for a minimum period specified by law (commonly five years).
Operators must provide real-time access to certain data sets for regulatory monitoring and must be able to generate detailed reports on demand.

Technical Implementation Requirements for Responsible Gambling Tools

Operators are required to integrate responsible gambling tools into their platforms, including self-exclusion features, deposit and loss limits, and reality checks.
Systems must allow players to set daily, weekly, or monthly limits on deposits, losses, and playing time, with enforcement at the system level.
Self-exclusion mechanisms must be technically robust, ensuring that excluded players cannot circumvent restrictions by creating new accounts or using alternative credentials.
The platform must provide clear, accessible information about responsible gambling resources and support services.
Operators must implement monitoring tools to detect signs of problem gambling behavior and trigger automated interventions or alerts to both players and support staff.

Sources

Primary Regulatory Authorities

Ministry of Finance of Montenegro – Supervisory authority for gambling regulation and policy

Legislation Resources

Official Gazette of Montenegro – Official legislative portal for all national laws, including the Law on Games of Chance

Contact Information

Ministry of Finance of Montenegro Stanka Dragojevića 2, 81000 Podgorica, Montenegro Phone: +382 20 242 835 Email: kabinet@mif.gov.me