The Dutch gambling market generated €4.1bn in gross gaming revenue (GGR) in 2025, down from an inflation-adjusted €4.5bn in 2024, according to the Netherlands Gambling Authority’s (KSA) annual Market Scan, published in October 2026. Online GGR fell 21.0% to €1.20bn.
The KSA links the drop to three factors: the player protection rules in force since 1 October 2024, the gambling tax rise from 30.5% to 34.2% in 2025, and the comparison with a 2024 boosted by the men’s Euro 2024 football tournament. All 2024 figures in the report are corrected for inflation.
Dutch gambling market by segment
Online betting took the heaviest hit. Its GGR fell 30.2% to €254m, while online casino GGR fell 18.2%, from €1.16bn to €947m, the KSA said. Land-based casino offer, which covers state operator Holland Casino, arcades and machines in bars and restaurants, slipped 1.0% to €1.33bn.
| Segment | GGR 2024 (€m) | GGR 2025 (€m) | Change |
|---|---|---|---|
| Online casino | 1,160 | 947 | -18.2% |
| Online betting | 364 | 254 | -30.2% |
| Holland Casino (land-based) | 664 | 683 | +2.8% |
| Arcades | 562 | 539 | -4.1% |
| Bar and restaurant machines | 113 | 104 | -8.0% |
| Land-based betting | 80 | 86 | +8.5% |
| Total market | 4,500 | 4,100 | -8.9% |
Source: KSA Market Scan 2025, figures for calendar years 2024 (inflation-adjusted) and 2025. Arcade, bar and total changes calculated by The iGaming Europe from the rounded figures.
Lotteries held roughly level. Their GGR fell 1.8%, while ticket sales of the non-incidental lotteries rose to €2.49bn from €2.42bn. Total casino-type GGR, online and land-based, was €2.27bn, with land-based play taking 58% of it.
The split between channels in betting moved in opposite directions. Land-based betting, run by the Nederlandse Loterij under the TOTO brand and by ZEbetting for horse racing, grew 8.5%. The KSA said this may come from lighter regulation offline, where duty-of-care rules are less strict and players are not checked against the Central Register for Exclusion from Games of Chance (Cruks). Online now accounts for 75% of Dutch betting GGR, down from 82% a year earlier.
Licensed operators and the rules behind the fall
Twenty-six licensees offered online casino games for at least one month in 2025 under the remote gambling licence regime opened on 1 October 2021. Twenty-two offered only games played against the operator; the other 4 held both casino permissions. Nineteen licensees offered online betting: 16 sports only and 3 sports plus horse racing.
The rules that hit online revenue sit in the Responsible Gaming Policy Rule 2024 and the regulation on play limits. Since 1 October 2024, players aged 18 to 23 face a net deposit limit of €300 a month and players aged 24 and above a limit of €700. A player can only raise the limit by showing the spend is affordable.
Advertising rules tightened in three steps: untargeted ads such as TV and outdoor were banned from 1 July 2023, sponsorship of events and TV programmes from 1 July 2024, and sponsorship of sports clubs, matches and athletes by online operators from 1 July 2025. Data from Nielsen cited in the report show that lottery operators bought most of the TV, social media and outdoor advertising in 2025.
Tax receipts hold as rates climb
Gambling tax paid across all segments was €1.05bn in 2025, compared with €1.06bn in 2024, the KSA said. Receipts fell less than GGR because the rate rose. The tax went up again to 37.8% on 1 January 2026.
| Segment | Tax 2024 (€m) | Tax 2025 (€m) |
|---|---|---|
| Online casino | 353 | 324 |
| Land-based casino offer | 409 | 453 |
| Online betting | 111 | 87 |
| Land-based betting | 24 | 30 |
| Lotteries | 161 | 153 |
Source: KSA Market Scan 2025. Online casino and land-based betting rows derived by The iGaming Europe from the KSA’s segment totals (casino €777m in 2025, betting €117m).
Lotteries paid less tax because prizes of €449 or less are exempt and the Staatsloterij changed its prize structure. They also transferred €770m to good causes, sport and the state, almost unchanged from €772m. Lotteries supplied 97% of all contributions and dividends from Dutch gambling. Holland Casino has paid no dividend since 2018, and neither it nor the Nederlandse Loterij paid one in 2025, so online casino generated €0 in dividends for the state.
Land-based venues and machines
The number of arcades fell by a net 3 to 194 at the end of 2025, after a drop of 23 in 2024. Visits held at 11.7m, compared with 11.6m a year earlier, so average visits per arcade rose from 53,000 to 59,000 while GGR fell. The KSA reads this as a lower average loss per visit.
Holland Casino closed its Zandvoort venue on 1 February 2025 and ended the year with 13 locations, but visits rose from 5.9m to 6.1m. It ran 339 gaming tables, down from 364, with Amsterdam-Centrum the largest at 47. The KSA noted that Holland Casino depends more and more on slot machines, as table game revenue grows more slowly.
- Arcade player positions: 21,792, up 4% on 2024 but 28% below 2021.
- Holland Casino player positions: 5,962, down from 6,233.
- Bar and restaurant machines: 8,488 positions at 4,600 locations, up from 7,910 at 4,286.
- Machine marks issued: 2,274 in 2025, against 2,229 in 2024 and 4,733 in 2019.
- New model approvals for casino machines: 93.
The average arcade had 112 player positions in December 2025; the average Holland Casino venue had 459. Most arcades and casinos are in the west and south of the country, and Holland Casino has no venue in Zeeland, Drenthe or Flevoland.
How do Dutch players compare with the EU?
The average Dutch adult lost €282 on licensed gambling in 2025, against €369 for the average EU adult once adjusted for income and purchasing power, according to the KSA’s international comparison. The Dutch figure fell from €307 in 2024; the EU figure stayed almost flat.
| Segment | Netherlands 2025 (€) | EU average 2025 (€) | Netherlands 2024 (€) |
|---|---|---|---|
| Lotteries | 103 | 118 | 106 |
| Casino (online and land-based) | 156 | 173 | 171 |
| Betting | 23 | 78 | 30 |
| Total | 282 | 369 | 307 |
Source: KSA Market Scan 2025, losses per adult on licensed gambling, EU figures adjusted to Dutch income and purchasing power.
The gap is widest in betting, where Dutch adults lose less than a third of the EU average. Across the EU, online is gaining share: online casino rose to 16.3% of the licensed market from 14.7%, and online betting to 13.4% from 12.9%, while lotteries fell to 31.9% from 32.6%. Event betting, such as wagers on election results, is not allowed in the Netherlands and is left out of the comparison.
Return-to-player rates vary widely across Dutch products, according to the report: 92% to 99% for online casino and table games, 92% to 97% for online betting, 80% to 90% for arcade and bar machines, and 1% to 40% for charity lotteries, which must pass at least 40% of ticket sales to good causes.
Next steps
The KSA’s six-monthly monitoring report on the online market for spring 2026, also due in October 2026, will give more recent figures on licensed online play than the Market Scan. The 2026 numbers will be the first under the 37.8% tax rate. The regulator has also opened the tender for the Dutch totalisator licence for 2027 to 2032, the horse racing monopoly now held by ZEbetting. For how the Netherlands ranks globally, see our list of the top iGaming markets by size.
Source: Kansspelautoriteit
