The Norwegian Gambling Authority (Lotteritilsynet) has estimated player losses to the illegal market at NOK1.9bn ($204.7m) in 2025, a NOK500m ($53.9m) increase on the prior year, but says methodology changes mean it “cannot conclude” the illegal market is growing.
Illegal Market Estimate
Lotteritilsynet put the size of the unregulated market at between NOK1.7bn ($183.1m) and NOK2bn ($215.4m) in its latest report. The NOK1.9bn figure represents money lost by Norwegian players to foreign operators during 2025.
Despite the higher estimate, the authority was cautious about drawing conclusions from it.
“It is challenging for us to measure turnover in the illegal market because we do not have access to their revenue data. Even though this estimate is uncertain, it shows that substantial sums are still leaving Norway for the foreign gambling market, even if the overall trend appears relatively stable.”
— Atle Hamar, Director, Norwegian Gambling Authority
The regulator’s internal measurements show 2.6% of players used unlicensed operators in 2025, down from 3.8% in 2024. Lotteritilsynet cited both figures without resolving the apparent tension between a falling share and a rising absolute estimate.
Monopoly Channelisation and EGBA Pressure
Lotteritilsynet said future market growth is expected to be “flat” because the channelisation rate at Norsk Tipping and Norsk Rikstoto is now “so high.” Norsk Rikstoto has previously reported a channelisation rate of 97%.
The authority noted an increase in calls to Norway’s gambling helpline from players using foreign operators, describing this as a “concern.”
The European Gaming and Betting Association (EGBA) has called on Norway to abandon its monopoly model in favour of a multi-licensing framework, citing the approach adopted by Denmark, Sweden, and Finland, the latter scheduled to make the transition next summer. Lotteritilsynet’s report did not address that position.
Norway’s monopoly emerged intact following last year’s general election, though external pressure on the model continues to build.
Lottery Decline
Lotteritilsynet reported a decline in players of Norsk Tipping and Norsk Rikstoto’s lottery games, pointing to specific operational failures as a likely factor. In one case, Norsk Tipping awarded 52 incorrect winners prizes of NOK1m ($107,714) each in its Supertrekning Easter draw in 2025. The largest customer drop was recorded in Vikinglotto, down 5%.
The authority noted that a decline in 2025 jackpots relative to 2024 may reflect a “return to more normal levels of participation.” It described lottery products as “least associated with gambling-related harm” and the segment Norsk Tipping actively promotes.
Online Casino Growth and Youth Concerns
As lottery participation fell, online casino numbers rose. The number of online casino players at Norsk Tipping doubled over five years, from 200,000 in 2020 to 400,000 in 2025. More than 50,000 new customers joined in the past year.
Lotteritilsynet said it is “particularly concerned that young players may develop gambling problems,” citing increased gambling activity among 18-year-olds opening accounts for the first time.
The authority is proposing that players complete a questionnaire before accessing KongKasino, Norsk Tipping’s online casino product, as well as Yezz and E-Flax. On self-exclusion, Lotteritilsynet reported that its order to make the process easier at Norsk Tipping resulted in a sevenfold increase in players self-excluding.
Norsk Tipping has previously faced regulatory fines across the Nordic region, and its rapid online casino growth now places it under fresh scrutiny from the authority.
Regulators Confirm Fines: Norsk Tipping Penalized NOK10m, ATG Fine Reduced to SEK3m
Lotteritilsynet’s next steps on the proposed questionnaire requirement, and whether KongKasino’s growth trajectory prompts further intervention, will be among the key regulatory questions for Norway’s gambling market in the second half of 2026.
Source: Norwegian Gambling Authority (Lotteritilsynet)
