The Dutch gambling regulatory authority Kansspelautoriteit (KSA) latest data shows that the total revenue of online gambling in the Netherlands in the first half of 2025 was 600 million euros (approximately 695 million US dollars), a decrease of 16% compared to the second half of 2024, while the number of player accounts increased from 1.18 million to 1.29 million. KSA believes this abnormal phenomenon indicates that illegal online gambling activities may be increasing, as players turn to unlicensed sites to evade newly implemented responsible gambling rules (including deposit limits). Although the channelization rate of legal operators remains stable at 94%, the revenue share of illegal sites increased from 49% to 51%, and the regulatory authority is particularly concerned about the high proportion of young players aged 18-24 (23%), who only account for 9.3% of the adult population. About 839,000 active players participated in legal gambling in the first half of the year, accounting for 5.7% of the adult population.
Overview of Gambling Data for the First Half of the Year
The Dutch gambling regulatory authority Kansspelautoriteit (KSA) released data for the first half of 2025, showing that the total revenue of online gambling was 600 million euros (approximately 695 million US dollars). This data shows a significant downward trend compared to the second half of 2024.
During the same period, the number of player accounts increased rather than decreased, with the average monthly active accounts increasing from 1.18 million to 1.29 million, indicating an increase in market participation but a decrease in overall revenue.
Contradiction Between Revenue Decline and Account Growth
The 16% decrease in total gambling revenue contrasts sharply with the 9.3% increase in the number of player accounts. KSA points out that this abnormal phenomenon may reflect changes in market structure rather than a decrease in overall gambling activities.
The regulatory authority believes that players may create multiple accounts with different operators to evade deposit limits, leading to an increase in the number of accounts but a decrease in spending per account.
Illegal Gambling Trends and Regulatory Concerns
KSA expresses "concern" about the increase in activities on illegal sites, although the channelization rate of legal operators remains stable at 94%. The revenue share of illegal sites increased from 49% in the second half of 2024 to 51% in the first half of 2025, showing an expansion in the market share of unlicensed operators.
The regulatory authority believes that users may turn to illegal sites to evade new player protection rules, which are not subject to rules such as deposit limits.
Impact of Responsible Gambling Rules
The fully revised responsible gambling rules in 2025 include setting new deposit limits for online players, limiting the betting amount for each operator. These rules aim to protect players from excessive gambling risks.
KSA states that the change in rules may be partly responsible for the decline in revenue but also acknowledges the potential unintended consequences, such as pushing players towards illegal platforms.
Player Behavior and Account Patterns
In the first half of the year, an average of 7.1% of accounts were new, indicating that players may register multiple accounts to evade limits. Once reaching the deposit limit with one operator, players switch to other platforms to continue gaming.
This dispersion strategy allows players to circumvent the limit regulations, but it also increases the complexity of regulatory difficulty and risk control.
Gaming Preferences and Market Structure
Online casino games are the most popular among consumers, occupying the largest market share. Sports betting ranks second, followed by peer-to-peer casino games and horse racing betting.
This preference structure reflects the Dutch players' preference for entertainment games, slightly different from the traditional sports betting market.
Age Distribution and Risk Characteristics
Players aged 18-24 account for 23% of all accounts, significantly higher than their 9.3% proportion in the adult population. The excessive participation of young players raises concerns for the regulatory authority.
Despite high participation, the average loss amount for this age group is 37 euros, much lower than the 78 euros average loss for adult players, indicating a lower level of risk exposure.
Participation Rate and Population Coverage
About 839,000 active players engaged in legal platforms in the first half of 2025, accounting for 5.7% of the Dutch adult population. This proportion is slightly higher than the 5.4% in the second half of 2024.
The increase in participation rate indicates an increase in the prevalence of gambling, but it may bring corresponding social risks and challenges of responsible gambling.
Regulatory Response and Policy Considerations
KSA states that it will closely monitor the development of the illegal market and consider corresponding regulatory countermeasures. The regulatory authority needs to find a balance between player protection and market freedom.
Possible measures include strengthening the crackdown on illegal platforms, adjusting responsible gambling rules, and raising public awareness of the risks of illegal gambling.
Market Prospects and Industry Impact
The downward trend in revenue may continue to affect the profitability of operators, especially those reliant on high-deposit players. The industry may need to adjust business models to adapt to the new environment.
Legal operators face the challenge of implementing responsible gambling measures without driving users to illegal platforms.
