Illegal Gambling in the Netherlands Overtakes Legal Market by €17M Amid Tighter Player Protection Rules

The regulated online gambling market in the Netherlands has recorded its first decline in several years, while illegal platforms continue to grow, according to a new report from the Dutch Gambling Authority (KSA).

In the first half of 2025, the gross gaming revenue (GGR*) of licensed operators reached around €600 million, down 14% compared to the second half of 2024. At the same time, Dutch players wagered approximately €617 million on unlicensed websites — meaning the illegal market has overtaken the legal one by €17 million for the first time since regulation began.

The regulator attributes this shift to the tighter player protection measures introduced in October 2024, including deposit limits and mandatory income verification for large deposits.

Most of the legal market’s turnover — around 76% — comes from online casino and live games, such as roulette and game shows. Sports betting ranks second, although its share fluctuates depending on the sporting calendar. Poker and bingo account for roughly 2% of total revenue, while horse racing bets represent less than 0.2%.

Despite the slowdown in revenue, player activity remains strong. The number of active gambling accounts grew from 1.18 million to 1.29 million in the first half of 2025, with around 7% belonging to new users.

According to the KSA, about 839,000 Dutch residents used licensed gambling websites, representing 5.7% of the adult population.

Average player losses continue to decline — from €146 per month at the end of 2024 to around €119 in 2025. Over half of all users (55%) lose less than €100 per month, though 0.8% of players lose over €1,000.

The regulator described the growth of the illegal segment as alarming, warning that more users are migrating to unlicensed sites lacking limits, oversight, and data protection. The KSA emphasized that such platforms pose serious risks to consumers.

The situation for licensed operators is further strained by increasing tax burdens in the Netherlands.

* GGR (Gross Gaming Revenue) — a key financial metric representing the total amount wagered minus the total amount paid out in winnings.