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

Key Facts

Gross revenue (GGR) of the legal market in H1 2025: €600 million (-14% to H2 2024)
Illegal websites in H1 2025: €617 million
76% - share of online casinos and live games
Betting - 20%, poker and bingo - 2%, horse racing - less than 0.2%
839,000 players - 5.7% adult population

Why is that

From October 2024, new player protection rules came into force, providing for deposit limits and mandatory income verification for large deposits. Restrictions have reduced the risks, but part of the audience has gone to illegal sites where there are no restrictions and 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% lose more than €1,000

What worries the regulator

The illegal sector is growing the fastest
Players go to sites with no restrictions, controls or privacy protections
The situation of legal operators is aggravated by the growing tax burden

European context

A similar scenario has already been observed in Sweden and Germany: strict deposit limits have led to an increase in 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 control
Rising tax burden and deposit restrictions reduce the attractiveness of «white» operators
Illegal platforms benefit from the flexibility and speed of adapting to players' demands