KSA reveals drop in extreme gambling losses in 2025

The Netherlands Gambling Authority (Kansspelautoriteit, or KSA) has released its Spring 2025 Monitoring Report, offering an in-depth analysis of gambling behavior in the country for the second half of 2024. The findings provide encouraging evidence that the responsible gambling measures introduced in October 2024 are beginning to have a measurable and beneficial impact. Notably, the incidence of excessive gambling losses has decreased sharply, the number of accounts with extreme losses has plummeted, and player behavior appears to be stabilizing in the regulated online gambling market.

At the same time, the report points to a concerning trend in the rise of financial activity within the illegal gambling sector. While the vast majority of Dutch players continue to use licensed operators, a significant portion of total gambling expenditure is now being spent with unlicensed providers, raising alarms about enforcement effectiveness and the continued appeal of offshore platforms.

Key reforms to protect players are showing results

One of the report’s most significant revelations is the effectiveness of the KSA’s responsible gambling policy, which was introduced in October 2024. This regulatory update included a series of important protective measures, such as mandatory deposit limits, affordability checks, enhanced player behavior monitoring, and targeted interventions aimed at vulnerable demographics, including young adults.

The impact of these reforms has been profound. Prior to the policy change, around 4% of gambling accounts recorded losses exceeding €1,000 per month. Following the implementation of the new rules, that figure dropped dramatically to 1.2%. Equally significant is the reduction in the share of gross gaming revenue generated from high-risk accounts: before October 2024, 73% of total revenue came from accounts with large losses; after the new rules came into force, this number fell to just 23%.

This transformation suggests that the Dutch gambling market is becoming more sustainable and less reliant on a small pool of heavy-spending, high-risk players—an outcome that aligns closely with the KSA’s broader public health and harm reduction objectives.

Gross gaming revenue sees annual growth but slows in second half

The report details that the total gross gaming result (GGR)—calculated as total player stakes minus winnings paid out—for the full year of 2024 amounted to €1.47 billion. This marks a 6% year-on-year increase compared to 2023, when the GGR was €1.39 billion.

However, a closer look at the biannual breakdown shows a different pattern. The GGR in the second half of the year was 10% lower than in the first half. According to the KSA, this drop could be attributed to two major factors: a surge in gambling activity during the UEFA European Football Championship held in June, and the immediate impact of the new responsible gambling measures introduced in October.

The decline in the latter half of the year supports the argument that stricter regulatory measures have led to reduced overall gambling intensity, particularly among high-spending individuals.

Young adult gamblers remain a vulnerable demographic

The report dedicates particular attention to gambling behaviors among young adults aged 18 to 23—a group widely recognized as more susceptible to gambling-related harm due to developmental and social factors. Despite representing only 9% of the adult population, this demographic was responsible for 11% of all player losses during the second half of 2024.

Interestingly, while young adults are more active participants in gambling, especially in online sports betting, they tend to spend significantly less per month than older age groups. On average, a young adult lost €48 per month during the reporting period, compared to €148 for players aged 24 and above.

A closer examination of spending preferences shows that sports betting remains a major draw for this age group. Approximately 29% of the money wagered by young adults went toward sports bets, whereas for players over the age of 24, this figure was lower, at 22%. This data suggests that sporting events continue to be a central entry point into gambling for younger players, underscoring the importance of developing tailored education and intervention strategies to protect this at-risk group.

Gambling participation remains stable with slight increase in active accounts

The second half of 2024 saw a modest rise in the number of active gambling accounts. According to the report, an average of 1.19 million gambling accounts were used each month, up from 1.1 million in the first half of the year. This increase may reflect growing public awareness of safer gambling practices following the implementation of the KSA’s revised policies.

Despite the increase in accounts, the number of individual players has remained relatively stable. The KSA estimates that approximately 788,000 unique users gambled through legal providers during the six-month period, representing around 5.4% of the adult population. This is nearly unchanged from the 5.5% reported in the previous six months.

The gap between account numbers and unique players is attributed to the fact that individuals may operate multiple accounts across different platforms, often for the purpose of comparing odds or managing betting strategies.

Average monthly losses decline across age groups

The reforms appear to be achieving one of their core goals: reducing the average amount of money players lose each month. Players aged 24 and older lost an average of €148 monthly during the second half of 2024—down from €160 in the first half. This decrease is notable because it occurred even as the number of gambling accounts increased.

This suggests that new users, and even existing players, are engaging in gambling more cautiously. They may be taking advantage of tools such as deposit limits and self-exclusion mechanisms, or simply adjusting their behavior in response to greater public awareness about gambling risks.

High-loss dependency is decreasing among licensed operators

Before the October reforms, a significant portion of gambling revenue came from players losing large amounts each month. Such reliance on a narrow band of heavy users has long been criticized by researchers and policymakers alike, as it reflects a high-risk, unsustainable business model.

The Spring 2025 report demonstrates a significant shift away from this model. With fewer accounts incurring extreme losses and a broader distribution of spending across a wider player base, licensed operators are becoming less dependent on high-stakes gamblers. This evolution indicates progress toward a safer and more ethically grounded gambling ecosystem.

Illegal gambling market sees increase in total spend

While the legal online gambling market in the Netherlands has shown resilience and stability, the report flags a concerning rise in the financial footprint of the illegal gambling market. Although 91% of online gamblers still use licensed platforms, 50% of total gambling expenditure is now believed to be flowing to illegal or offshore operators.

This disconnect reveals a troubling pattern: a small percentage of users, likely those seeking fewer restrictions and higher betting limits, are directing large sums toward unregulated websites. These players may be intentionally circumventing legal frameworks in order to avoid deposit caps or to access riskier games unavailable through licensed providers.

The KSA has emphasized the need for enhanced enforcement to tackle this issue, including international cooperation, stricter penalties for illegal operators, and improved public education about the risks of gambling outside the regulated market.

Data on problem gambling and self-exclusion

Accurate national statistics on the prevalence of gambling addiction in the Netherlands remain scarce, but the monitoring report does provide some insight. In 2023, 2,456 individuals received clinical treatment for gambling-related disorders—a number that has yet to be updated for 2024.

The number of people choosing to exclude themselves from gambling through the Cruks (Central Exclusion Register) system reached 87,345 as of January 2025. Half of these individuals are under the age of 32, and 16% are within the 18–23 age bracket. This data indicates a growing public awareness of gambling-related risks and suggests that younger individuals are increasingly using self-exclusion as a tool for harm prevention.

Challenges for 2025 and beyond

As the Dutch gambling market enters a new phase of regulatory maturity, the KSA faces several challenges. While it has made undeniable progress in reducing harmful gambling behaviors, the migration of high-stakes users to illegal platforms threatens to undermine these gains. Future efforts will likely need to focus on reinforcing enforcement mechanisms, tightening controls on advertising, and introducing new technologies to detect and deter illegal activity.

Additionally, the KSA may consider further research into gambling addiction rates and more robust data collection methods to better understand long-term trends. Continued collaboration with mental health professionals, consumer advocacy groups, and international regulators will be crucial in refining existing policies and introducing new safeguards where needed.

Conclusion

The Spring 2025 Monitoring Report from the Netherlands Gambling Authority offers a comprehensive and encouraging snapshot of the country’s evolving gambling landscape. It underscores the effectiveness of newly implemented responsible gambling policies, particularly in reducing excessive losses and fostering a safer gaming environment. The decline in high-risk behavior and the increased use of protective tools like Cruks reflect a growing awareness among players about the risks associated with gambling.

However, the report also presents a stark warning: while player numbers remain stable and responsible gambling efforts are working within the legal market, a significant portion of gambling expenditure is now shifting toward unlicensed operators. This trend threatens to erode the progress made and poses a serious challenge to regulators and policymakers alike.

To build on these positive developments and mitigate emerging risks, the KSA must intensify its enforcement efforts, enhance cross-border cooperation, and continue investing in public education and research. Only by maintaining a balanced, well-regulated, and transparent gambling ecosystem can the Netherlands ensure the long-term health and sustainability of its gaming sector—while protecting the most vulnerable players in society.

FAQs

What is the total gross gaming revenue for 2024 in the Netherlands?
The total GGR reached €1.47 billion in 2024, a 6% increase from the previous year.

How did the October 2024 reforms affect gambling losses?
The reforms led to a sharp decline in extreme losses, with only 1.2% of accounts losing over €1,000 per month compared to 4% before.

Are more people gambling with licensed providers?
Yes, 91% of online gamblers in the Netherlands continue to use licensed platforms.

Why is the illegal gambling market still growing?
While fewer people gamble illegally, those who do tend to spend more, often seeking fewer restrictions and higher betting limits.

How many gambling accounts were active in late 2024?
An average of 1.19 million gambling accounts were active each month in the second half of the year.

What are the average losses for players aged 24 and over?
They lost an average of €148 per month in the second half of 2024, down from €160 earlier in the year.

How are young adults engaging with gambling?
Young adults are more likely to bet on sports and lose less money on average compared to older adults.

What is the Cruks exclusion system?
Cruks allows individuals to voluntarily block themselves from gambling with licensed operators in the Netherlands.

How many people have registered with Cruks?
As of January 2025, 87,345 people had registered, with half of them under age 32.

What challenges does the KSA face going forward?
Key challenges include reducing illegal market influence, improving data on gambling addiction, and maintaining effective enforcement.