Netherlands: illegal gambling overtook the licensed market
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For the first time since online gambling was legalized, the Dutch shadow sector was larger than the official one. According to regulator KSA, in the first six months of 2025, players spent €617 million on illegal sites - €17 million more than licensed operators.

Basic facts

Gross income (GGR) of the legal market in H1 2025: €600 million (-14% to H2 2024)
Illegal sites in H1 2025: €617 million
76% - share of online casinos and live games
Bets - 20%, poker and bingo - 2%, horse racing - less than 0.2%
839 thousand players - 5.7% of the adult population

Why so

New player protection rules came into effect from October 2024, providing deposit limits and mandatory proof of income for large replenishments Restrictions have reduced risks, but some of the audience has gone to illegal venues where there are no restrictions or controls.

Player behavior

Number of active accounts: 1.29 million (+9%)
7% - new users
Average losses per player: €119 per month (-18%)
55% players lose less than €100, but 0.8% is more than €1,000

What worries the regulator

The illegal sector is growing fastest
Players go to sites without restrictions, control or protection of personal data
The situation of legal operators is aggravated by an increase in the tax burden

European context

A similar scenario has already been observed in Sweden and Germany: tight deposit limits have led to the growth of illegal sites. European regulators are increasingly looking for a compromise between player protection and market competitiveness.

Conclusions

Strict regulation of the legal market creates opportunities for shadow platforms - players go where there are no limits and controls
Rising tax burdens and restrictions on deposits reduce the attractiveness of white operators
Illegal platforms gain the advantage of flexibility and speed of adaptation to player requests