First and foremost it's about the quality of football, then the fan following...the old Yugo league had, what, close to 10,000 avg attendance in the 80s?
The first prerequisite for people to get people to come watch football is...good football. Sure countries in our region can't be like the Serie A, but a lot can be done to improve the standard...and then you can make up for the quality you can't attain by playing attacking football, people will come to see a lot of goals, that's always exciting. Also it has to be "clean", I think you know what I mean (and I'm not talking about the # of fouls on the pitch).
Second, you have to have teams from places where enough people live to fill up a stadium, teams with established fan bases, not some team that played in seoska liga until 10 years ago and can fit only 500 people in their ground.
All other promotions, measures, free passes, bla bla bla come after...