Ksa says Dutch licensed gambling GGR fell to €4.1bn in 2025

The Kansspelautoriteit (Ksa) on 29 October reported that the Dutch licensed gambling market’s gross gaming result (BSR, stakes minus prizes paid) fell from €4.5bn in 2024 to €4.1bn in 2025. Its 2025 market scan and first-half 2026 online gambling monitoring report attribute the contraction mainly to online gambling. Online casino BSR fell 18.2% and online betting BSR fell 30.2%.

For compliance teams, the contraction does not mean exposure has fallen proportionately. Online gambling accounts increased from 1.38m in the second half of 2025 to 1.48m in the first half of 2026, although the Ksa says the number of people who gamble has not increased significantly. It estimates about 490,000 people gamble online each month and about 820,000 did so at least once in the first half of 2026. The Ksa says the rise in accounts may partly reflect the men’s World Cup, which began in June, but may also mean people are opening multiple accounts to circumvent deposit limits applied per account. In Atlas’s view, operators should therefore treat account growth as a customer-level control question, not as a proxy for growth in unique gamblers.

The 2025 market split

The Ksa says the online decline was at least partly attributable to participant-protection measures introduced at the end of 2024, including the net deposit limit. The comparison is also affected by the men’s UEFA European Championship in 2024, which lifted sports-betting BSR in that year.

The land-based market was more stable:

- BSR from machines in gaming halls and hospitality venues fell 4.7%.
- Holland Casino’s BSR rose 2.8%, mainly because of its machines rather than its table-games offering.
- BSR from the various lotteries fell 1.8%.

The figures therefore do not show a uniform fall across all licensed gambling. The sharpest movement was in online casino and betting, the segments most directly exposed to the late-2024 protection measures.

Account growth and channelisation

The Ksa says channelisation by participants appears to have stabilised. About 94% of people who gamble do so only through licensed offerings. Measured by BSR, however, channelisation rose from an estimated 54% in the second half of 2025 to 59% in the first half of 2026.

The gap matters. The Ksa says it suggests that people who gamble illegally incur considerably higher average losses than people using licensed operators. A high participant-based figure can therefore coexist with a materially lower share of regulated gambling by losses.

The harm data adds a separate warning. Figures from the Landelijk Alcohol en Drugs Informatie Systeem, which relate to 2025 rather than the first-half 2026 monitoring period, show that more than 14% more people were in treatment for gambling addiction than in 2024. Ipsos’s 2026 estimates show the number at high risk of gambling harm remained unchanged, while the number at low risk increased and the number at moderate risk decreased. Ipsos estimates that 65% of people who gamble online do so non-problematically, unchanged from 2025.

Unlicensed supply remains an active enforcement issue. Atlas’s records show that the Ksa fined EOD Code SRL €37.25m on 22 October for offering unlicensed online gambling to people in the Netherlands. That action sits alongside the Ksa’s finding that the licensed share of gambling by losses was only 59% in the first half of 2026.

Atlas reads the difference between 94% channelisation by participants and 59% by BSR as the Ksa’s most important market signal: the regulated market can look highly channelled by headcount while unlicensed gambling still represents a much larger share of losses.