Is Gambling Legal in Serbia? Laws & Regulations Explained 2025

Key Information

Last Update 2025

Regulatory Authority Games of Chance Administration (Ministry of Finance)

License Cost Varies

Regulation by Activity Type

Casinos Regulated

Online Casinos Regulated

Betting Regulated

Online Betting Regulated

Lotteries Regulated

Poker Regulated

Highlights

Gambling in Serbia is regulated by the Law on Games of Chance, with major amendments effective from January 2025.
Operators must comply with strict financial transaction standards, including limits on cash deposits and withdrawals above 1,175,000 dinars per month.
All gambling venues must enforce mandatory age verification and display visible warnings about gambling addiction with treatment contacts.
Slot machine and sports betting operators pay a 15% tax on gross gaming revenue, with betting shops facing a minimum fee of €1,000 per location.
Licensing and compliance checks are conducted by both national and local authorities, who must regularly verify adherence to customer protection rules.
Alcohol served in gambling venues is limited to drinks with less than 5% alcohol content and is prohibited for active gamblers at sports or slot machines.
Operators are required to maintain transparent records of all electronic payments and bonuses, ensuring traceability and regulatory oversight.

Legislation

Primary Legislation

The legal framework governing gambling in Serbia is primarily established by the Law on Games of Chance. This comprehensive law regulates all forms of gambling activities, including betting, gaming machines, casinos, bingo, and online gambling. The most recent amendments to the Law on Games of Chance, published in the Official Gazette of the Republic of Serbia No. 18/20 and updated as of January 2025, have introduced stricter controls and standards for both land-based and online gambling operations. These updates focus on enhancing the monitoring of financial transactions, setting clear requirements for electronic payment systems, and establishing systematic rules for jackpot management. The legislation also mandates specific standards for customer protection and responsible gambling, including the display of addiction warnings and age verification requirements in gambling venues. Local authorities are tasked with ensuring that all gambling establishments comply with these national legal standards.

Regulatory Authority

Oversight and enforcement of gambling legislation in Serbia are the responsibility of national and local authorities. The primary regulatory body is the Ministry of Finance of the Republic of Serbia, which supervises the implementation of the Law on Games of Chance and its amendments. The Ministry is empowered to issue regulations, monitor compliance, and coordinate with local municipalities and administrative districts. Local authorities are specifically instructed to enforce compliance with licensing, customer protection, and operational standards at the municipal and district levels.

Supervision and enforcement of gambling laws and regulations
Issuance of secondary regulations and standards for gambling operations
Coordination with local authorities for venue inspections and compliance checks
Oversight of customer protection measures, including age verification and responsible gambling initiatives

License Types

Types of Gambling Licenses in Serbia

Casino License: Required for the operation of land-based casinos offering table games and slot machines.
Betting License: Needed for sports betting shops, both retail and online.
Slot Machine Arcade License: For venues operating gaming machines outside of full-scale casinos.
Bingo Hall License: For the operation of bingo games in dedicated halls.
Online Gambling License: Covers online betting, casino games, and other interactive gambling services.

Application Process and Duration

Applications are submitted to the Games of Chance Administration, under the Ministry of Finance.
Applicants must provide detailed business plans, proof of financial stability, and information on company structure and key personnel.
Background checks are conducted on shareholders and management to ensure suitability.
Physical venues are subject to inspection for compliance with technical and security standards.
Licenses are generally issued for a fixed period, commonly 10 years for casinos and shorter durations for other activities, with the possibility of renewal upon meeting all regulatory requirements.
Renewal applications must be submitted before the license expires and must demonstrate continued compliance with all licensing conditions.

Eligibility Criteria

Applicants must be legal entities registered in Serbia or, in some cases, within the European Economic Area.
Key personnel must have a clean criminal record and demonstrate relevant experience in gaming operations.
Applicants must not have outstanding tax liabilities or unresolved regulatory breaches.
Venues must comply with location restrictions and technical standards, including security systems and responsible gambling measures.

Financial Requirements and Licensing Costs

Casino License: Requires a significant financial guarantee, with a minimum pledge in Serbian dinars equivalent to at least €300,000. Additional annual or periodic fees apply.
Betting Shops: Must pay a minimum licensing fee of €1,000 per betting shop, calculated in dinar equivalent. There is also a 15% base fee on the difference between total wagers and winnings from sports betting.
Slot Machine Arcades: Subject to a 15% base fee on the difference between total wagers and winnings from slot machine games.
Bingo Halls: Licensing fees are set by the regulator and depend on the scale of operations.
Online Gambling: Operators must provide financial guarantees and pay initial and ongoing licensing fees, with the amounts determined by the regulator based on the scope of activities.
All applicants must provide proof of sufficient capital and financial reserves to cover player winnings and operational liabilities.

Key Requirements for Obtaining and Maintaining a License

Compliance with technical standards for gaming equipment, including certified electronic systems for recording bets and payouts.
Implementation of robust anti-money laundering (AML) and player protection measures, including age verification and responsible gambling tools.
Regular reporting to the regulator on financial transactions, player activity, and compliance with operational standards.
Display of responsible gambling information and addiction warnings at all physical venues and on websites.
Ongoing payment of licensing fees and maintenance of required financial guarantees throughout the license period.
Immediate notification to the regulator of any significant changes in ownership, management, or business structure.

Summary Table: Licensing Features

License Type	Application Fee / Guarantee	Ongoing Fees	Duration	Renewal
Casino	€300,000+ guarantee	Annual/periodic fees	Up to 10 years	Yes, upon compliance
Betting Shop	€1,000 per shop (min.)	15% of net wagers	Regulator-defined	Yes
Slot Arcade	Regulator-defined	15% of net wagers	Regulator-defined	Yes
Bingo Hall	Regulator-defined	Regulator-defined	Regulator-defined	Yes
Online Gambling	Financial guarantee	Regulator-defined	Regulator-defined	Yes

Gambling Tax

Tax Rates for Gambling Operators in Serbia

Type of Gambling Operation	Tax Rate	Tax Base	Minimum Payment (if applicable)
Slot Machine Venues (Arcades, Gaming Halls)	15%	Gross Gaming Revenue (GGR): Difference between total wagers and total winnings	None specified
Sports Betting Shops	15%	Gross Gaming Revenue (GGR): Difference between total wagers and total winnings	€1,000 (in dinar equivalent) per registered betting shop

Basis for Taxation

Serbia applies a tax on the Gross Gaming Revenue (GGR), which is calculated as the total value of wagers minus the total value of winnings paid out to players.
This GGR-based tax applies to both slot machine operations and sports betting shops.
For sports betting, there is also a minimum tax amount set per physical betting shop location, regardless of actual GGR.

Tax Reporting and Payment Requirements

Operators are required to maintain accurate and transparent records of all wagers, winnings, and transactions.
Tax payments must be calculated and remitted regularly, typically on a monthly basis, to the relevant Serbian tax authorities.
Local authorities are tasked with verifying that all gambling venues have paid the necessary taxes as part of ongoing compliance checks.
Operators must also comply with additional financial record-keeping requirements, including electronic confirmation of wagers and detailed tracking of bonuses and jackpots.

Tax Incentives, Exemptions, and Special Provisions

No general tax incentives or exemptions for gambling operators are specified in the latest regulatory updates.
The only notable provision is the minimum tax payment for sports betting shops, set at €1,000 (in dinar equivalent) per registered shop, which applies even if the calculated 15% GGR tax would be lower.
No special reduced rates or sector-specific exemptions are currently in effect for other forms of gambling operations.

Prohibited Individuals

Age Restrictions and Identification Requirements

The minimum legal age for participating in any form of gambling in Serbia is 18 years.
Gambling venues are required to implement strict age verification procedures to prevent minors from accessing gambling services. This includes mandatory identification checks at entry points and during registration for both land-based and online gambling.
Inspections are regularly conducted to ensure compliance with age restrictions, and venues found in violation face significant penalties.

Prohibited Activities and Game Restrictions

Minors (persons under 18) are strictly prohibited from participating in any gambling activities, including betting, slot machines, lotteries, and online games.
Alcoholic beverages with an alcohol content above 5% are not permitted to be served in gambling venues. Additionally, individuals actively participating in sports betting or playing slot machines are not allowed to be served any alcoholic beverages, regardless of strength.
Gambling operators must comply with specific restrictions on the types of games offered, ensuring that all games are authorized and meet regulatory standards. Unlicensed or unauthorized games are strictly forbidden.

Advertising and Marketing Limitations

Advertising of gambling services is subject to strict regulation to prevent targeting of minors and vulnerable groups.
Marketing materials must not depict gambling as a solution to financial problems or promote excessive play.
All advertising must include clear warnings about the risks of gambling addiction and information on where to seek help.
Advertising is not permitted in media or locations primarily intended for minors, such as schools, playgrounds, and youth centers.

Responsible Gambling and Player Protection Measures

Gambling venues are required to display prominent warnings about the risks of gambling addiction, including information on certified treatment facilities and support services.
Operators must maintain detailed records of player transactions, including electronic payments and bonuses, to ensure transparency and facilitate monitoring for signs of problematic gambling behavior.
Limits are imposed on cash transactions: individual players cannot deposit or withdraw more than 1,175,000 Serbian dinars within a 30-day period, whether in person or via bank accounts.
Operators are obligated to monitor player activity and intervene when signs of gambling harm or addiction are detected, offering self-exclusion options and referral to support services.
Jackpot systems must be transparent, with procedures in place to ensure fair and random distribution of prizes.

Geographic and Location Restrictions for Gambling Venues

Gambling venues are subject to local zoning regulations, and municipalities are responsible for verifying that venues comply with all location-based restrictions and customer protection standards.
Inspections are conducted at the municipal and district levels to ensure venues are not located in prohibited areas, such as near schools or youth facilities.
Authorities have increased oversight in rural areas to address concerns about the proliferation of gambling venues and ensure equitable enforcement of regulations across all regions.

Timeline

Year/Date	Event
2004	Serbia adopts its first modern Law on Games of Chance, establishing a formal regulatory framework for gambling activities.
2011	Comprehensive new Law on Games of Chance is enacted, significantly updating and expanding gambling regulation, including provisions for licensing, supervision, and enforcement.
2020	Significant amendments to the Law on Games of Chance are introduced, further aligning Serbian regulations with EU standards and strengthening controls over online gambling.
2024-11-28	Ministry of Finance introduces new amendments to the Law on Games of Chance, focusing on enhanced financial controls, transaction monitoring, and online betting operations.
2025-01-06	Latest amendments to the Law on Games of Chance come into effect, introducing stricter regulations on cash transaction limits, electronic payments, jackpot management, and operator obligations.
2025-01	Government orders all municipalities and districts to enforce new standards for gambling venues, including mandatory age verification, addiction warnings, and restrictions on alcohol service in gambling establishments.

Requirements

Software Certification and Technical Standards

All gaming software and systems used by operators must be certified by accredited testing laboratories to ensure fairness, randomness, and compliance with Serbian technical standards.
Transaction-related equipment, including electronic devices for deposits and withdrawals, must comply with established technical standards aimed at enhancing the monitoring and traceability of bets, payments, and player activities.
Jackpot systems must be implemented using systematic and transparent procedures to guarantee the random distribution of prizes and proper processing of player stakes.
Operators are required to maintain robust systems for the electronic recording and confirmation of all wagers and payments, ensuring the integrity and traceability of every transaction.

Data Protection, Privacy Measures, and Server Location

Operators must ensure the protection of player data in accordance with Serbian data protection laws, implementing technical and organizational measures to safeguard personal and financial information.
All personal and transactional data must be stored securely, with access restricted to authorized personnel only.
Operators are generally required to host their servers within Serbia or in jurisdictions approved by Serbian authorities, ensuring that data remains accessible for regulatory oversight and inspection.

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

Operators must implement comprehensive AML procedures, including mandatory customer identification and verification (KYC) before allowing participation in gambling activities.
Enhanced due diligence is required for large or suspicious transactions, with strict limits on cash deposits and withdrawals. Individual players are restricted from making cash deposits or withdrawals exceeding 1,175,000 dinars within a 30-day period, regardless of whether the transaction is in person or via bank account.
Operators must monitor and report any suspicious transactions to relevant authorities in accordance with Serbian AML legislation.

Financial Reporting, Auditing Standards, and Record-Keeping

Operators are obligated to maintain clear and accurate records of all electronic payments, wagers, bonuses, and jackpots, ensuring all transactions are properly documented and traceable.
Regular financial reporting to regulatory authorities is mandatory, including the submission of detailed transaction logs and compliance reports.
Operators must undergo periodic independent audits to verify the accuracy of financial records and compliance with regulatory requirements.
All records must be retained for a specified period as mandated by Serbian law, and must be readily accessible for inspection by regulatory authorities.

Technical Implementation Requirements for Responsible Gambling Tools

Operators must implement technical solutions to enforce mandatory age verification, ensuring that minors are prevented from participating in gambling activities.
Venues and online platforms are required to display prominent warnings about gambling addiction, including information about certified treatment facilities and support resources.
Responsible gambling tools, such as self-exclusion mechanisms, deposit limits, and session time reminders, must be integrated into gaming systems and made easily accessible to players.
Operators must monitor and enforce responsible gambling measures, ensuring that players who opt for self-exclusion or set limits are effectively restricted from further participation.

Sources

Primary Regulatory Authorities

Games of Chance Administration (Ministry of Finance of the Republic of Serbia) - Official regulatory body for gambling in Serbia
Address: Omladinskih brigada 1, 11070 Belgrade, Serbia
Phone: +381 11 3117293
Email: uprava.igara@trezor.gov.rs

Legislation Resources

- Law on Games of Chance (Official Legislation Portal - Serbian)

Additional Official Authorities

Commissioner for Information of Public Importance and Personal Data Protection - Data protection authority for gambling operators
Regulatory Authority for Electronic Media (REM) - Supervises advertising in gambling sector