Legal Online Gambling Growth Slows in 2025 as Illegal Market Expands, Reports Dutch Regulator

According to the Dutch Gaming Authority (Kansspelautoriteit, or Ksa) in its Autumn 2025 Monitoring Report, recent regulatory changes aimed at enhancing player protection are a key factor behind the legal market’s stagnation.

Gross Gaming Revenue (GGR) Declines Despite Growing Player Base

In the first half of 2025, the gross gaming result (GGR)—defined as total stakes minus prizes paid out—reached €600 million, down 16% from €697 million in the previous six months. This decline follows the introduction of new player protection measures, including mandatory deposit limits and stricter account controls.

Despite this drop in revenue, the number of player accounts continues to rise. The average number of active accounts per month increased from 1.18 million in the second half of 2024 to 1.29 million in the first half of 2025. Around 7.1% of these were new accounts—an increase likely driven by players opening multiple accounts to circumvent deposit limits without submitting income verification.

Player Numbers Up, But Average Losses Down

Although a single player may hold multiple accounts, the estimated number of unique active online gamblers in the legal market reached 839,000 during the first six months of 2025. This represents 5.7% of the adult population, slightly up from 5.4% in the previous period.

However, the average monthly loss per player has dropped significantly—from €146 in late 2024 to €119 by early 2025. This decline reflects the impact of new responsible gambling policies, and accounts for players using multiple platforms or not playing every month.

Youth Gambling Remains High Among Legal Accounts

Young adults aged 18 to 24 continue to be overrepresented in the legal market. While they make up only 9.3% of the adult population, they account for 23% of all player accounts. That said, their average monthly losses are lower than those of older players—€37 per account compared to €78 for the general adult population. Young adults are also more likely to engage in sports betting, according to the Ksa.

Illegal Gambling Market Sees Continued Growth in 2025

While 94% of online players still gamble exclusively with legal providers, the share of total gambling revenue going to illegal gambling operators remains concerning. The GGR channeling rate to the illegal market dropped from 51% at the end of 2024 to 49% in early 2025—a marginal decline.

The Ksa warns that stricter regulations in the legal market may unintentionally be pushing players toward unlicensed gambling sites, where protective measures do not exist. This shift threatens to undermine player safety and long-term market stability.

Conclusion: Player Protection vs Market Growth

The Dutch legal online gambling market in 2025 faces a delicate balance. While stricter player protection rules are reducing average player losses and promoting responsible gaming, they may also be unintentionally driving growth in the illegal market. The Dutch Gambling Authority emphasizes the need for continued monitoring to ensure the legal market remains attractive while still prioritizing player safety.