Dutch National Lottery Warns of Rising Illegal Online Gambling and Harm
Research commissioned by the Nederlandse Loterij suggests illegal online gambling in the Netherlands is growing in frequency and stakes, with many participants showing signs of problem gambling.
LISTEN TO THIS ARTICLE:A study of 15,000 people carried out by research firm Verinorm and led by Marjan Olfers and Anton van Wijk finds that a substantial share of unlicensed bettors are placing larger wagers more often and that over half of these players meet criteria for gambling problems. The Nederlandse Loterij, the state-controlled national lottery operator, says the data expose a widening public-protection gap in the country’s gambling market.
By age group, the largest cohort engaging with illegal operators is 18 to 34-year-olds, accounting for roughly 60% of such activity. The report notes that many in that group first accessed illicit sites as minors. While most illegal gamblers initially placed bets in the €10 to €50 range, the research indicates a shift: a growing proportion now wager more than €50 per session.
The results of this study are alarming: increased participation in illegal gambling, more than half of these players have gambling problems, and a significant group started using illegal gambling sites at a young age. It makes it clear once again that the back door to illegal gambling must be closed. Because our calculations show that 200,000 players gamble illegally online, without any protection. It's up to the government to closely monitor the effect of measures on channelization, such as increasing gambling taxes and introducing limits. And we must work together with the Gaming Authority, banks, tech companies like Google and Meta, and hosting services to combat illegal offerings to truly protect players.
How Regulators Plan to Tackle Illegal Gambling?
The findings come against a regulatory backdrop shaped by the Remote Gambling Act, which opened a licensed online market in the Netherlands in recent years and placed oversight with the Kansspelautoriteit (Dutch Gaming Authority). Despite the regulated framework, the new study suggests a sizable illicit market persists alongside licensed operators, raising questions about enforcement and channelization of the process of steering players to legal, regulated platforms.
Industry and regulator responses will likely focus on several levers: tougher enforcement against unlicensed sites, more aggressive payment-blocking by banks and card providers, and cooperation with technology platforms and hosting providers to limit advertising and access. Nederlandse Loterij estimates roughly 200,000 people use illegal online gambling services in the Netherlands, a figure that, if accurate, represents a significant share of potential customers outside the regulated system.
Stakeholders also point to the challenge of younger users who first encounter unlicensed operators before the legal age for gambling. Marjan Olfers, who led the Verinorm research, said: "Our analysis shows younger players dominate illegal markets, and while many began with small stakes, a worrying shift toward higher bets is clear. Early exposure appears to be a strong predictor of later harm". The study authors warn that without stronger cross-sector action, the regulated market designed to protect consumers will struggle to achieve full channelization.
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Research Highlights Gambling Harm as Lottery Faces Change
The Verinorm study surveyed 15,000 respondents across the Netherlands and combined prevalence measures with questions designed to identify gambling-related harm. More than half of identified illegal gamblers scored in ranges indicative of problem gambling, the report says, and the data point to both frequency and monetary escalation among this group.
The research and the lottery's response arrive as Nederlandse Loterij implements leadership changes. The operator recently announced the departure of its chief financial and risk officer, Jet Roos-van Aerssen, who took the role in May 2024. The company is also preparing for a change at the supervisory level after Alexander Pechtold said he will step down from the Supervisory Board in January 2026. Meanwhile, the Dutch government in May confirmed it would not pursue privatisation of Nederlandse Loterij or the state-run casino operator Holland Casino for the time being, saying such a move would not be "feasible and proportionate" at present.
As regulators, operators and payment and tech companies consider their next steps, the Verinorm data adds urgency to debates over enforcement and prevention. For policymakers, the immediate question is whether new measures, from increased penalties for unlicensed operators to enhanced blocking of payment routes and advertising, can reduce the pool of unregulated activity and limit harm among younger and vulnerable players.
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