UPIS RS Chief Outlines Republika Srpska’s Gambling Growth and Regional Cooperation Ambitions

Milko Grmuša, executive director of the Association of Gambling Operators of Republika Srpska (UPIS RS), has provided a detailed assessment of the territory’s gambling market, noting significant progress over the last five years but also pointing to persistent issues around unlicensed online operations and regulatory fragmentation.

Market Progress and Persistent Challenges

Grmuša described how both land-based and online segments have become more technologically advanced, driven by operator investment and increasingly constructive collaboration with the Gaming Authority of Republika Srpska (RUIS). He emphasised that gaming has emerged as a modern, technology-driven sector within the local economy, contributing to employment, public revenues and digital adoption. However, he warned that unlicensed online competition remains a major concern, a problem exacerbated by the speed of technological change outpacing legislation and enforcement mechanisms. A further challenge is the limited pool of professionals who fully understand both the commercial realities and the legal specifics of games of chance, which can lead to regulation shaped by stereotypes rather than evidence.

Regulatory and Compliance Hurdles

The executive director identified the lack of coordination among different regulatory requirements as the most pressing compliance challenge. Operators must navigate overlapping obligations covering taxation, anti-money laundering, data protection, consumer protection and sector-specific rules, often without clear or consistent guidance. He also called for greater regulatory predictability, advocating for stable, proportionate and technology-neutral rules that distinguish between licensed operators and unlicensed participants. Grmuša stressed that licensed operators who invest, employ people, pay taxes and comply with demanding standards must be able to compete in a market where the same rules apply to everyone.

Anti-Money Laundering Adaptation

On AML and counter-terrorist financing, Grmuša reported that licensed operators have made substantial progress in strengthening risk assessments, customer due diligence and transaction monitoring. UPIS RS has played a coordinating role alongside RUIS and the State Investigation and Protection Agency (SIPA). He stressed that the licensed sector should be seen as part of the solution, not a systemic problem, and that effective AML controls are essential for the industry’s credibility.

Combating Illegal Gambling

While illegal land-based gambling has been significantly reduced over the past decade, Grmuša noted that unlicensed online gambling remains difficult to tackle due to the cross-border nature of the internet and the institutional complexity of Bosnia and Herzegovina. Traditional inspection methods are insufficient, and stronger coordination with internet service providers, payment institutions and advertising platforms is needed. Licensed operators can assist by reporting illicit activity and sharing technical knowledge, but enforcement ultimately rests with public authorities.

Regional Cooperation Through BGF

UPIS RS is a founding member of the Balkan Gaming Federation (BGF), a regional initiative aimed at fostering cooperation. Grmuša explained that the markets of Southeast Europe face common challenges, and BGF provides a platform for exchanging tested solutions, developing professional standards and amplifying the industry’s voice with national regulators. “I believe that, within five years, BGF can become one of the strongest examples of constructive regional cooperation in Southeast Europe,” he said, contributing to regulatory convergence and investment. Specific planned actions include a round table with Balkan regulators, a regional observatory for illegal gambling, model protocols for coordinated enforcement, an annual regulatory benchmark, and joint training programmes.

Roadmap for the Future

Looking ahead, Grmuša outlined a four-principle roadmap: stable and risk-based regulation; a coordinated regional strategy against illegal online gambling; gradual regulatory convergence through BGF; and continued investment in people, technology and the broader economy. He concluded that success should be measured not only by revenue but by the strength of legal institutions, player protection, job quality, and public confidence in a fair and transparent market.