In 2025, the Dutch gambling regulator, the Kansspelautoriteit (Ksa), seems to have reached a turning point in its fight against illegal online casinos. After a period of sanctions deemed ‘modest’, the resumption of turnover estimates suggests that much more dissuasive fines are on the horizon.
Why were the fines so low?
In recent months, several unlicensed online casino operators have been fined. However, in 2025, these fines remained relatively low, as Paul Benner, head of enforcement at the Ksa, publicly acknowledged. He explained that the authority did not, temporarily, have access to reliable estimates of the turnover of foreign operators. As a result, penalties were often limited to the basic fine — far from a sanction proportional to the scale of the illegal activities.
At the ‘Doen wat nodig is’ (Do what is necessary) event organised by the Centrum voor Verantwoord Gokken, Paul Benner confirmed this situation: the lack of turnover data forced the Ksa to adhere to a minimalist framework.
A new, stricter framework since 2025
But 2025 also marks the entry into force of a new, more structured penalty system. Since 1 January, the KSA has been applying a system of five categories of fines depending on the seriousness of the offence. The amounts range from €500 for minor offences to €2 million for the most serious violations. In the event of repeat offences, proven negligence, impact on players or non-compliance with the rules on combating money laundering and terrorist financing (Wwft law), the fines may be increased.
For illegal operators (outside the scope of the Wwft), the Ksa may also impose a fine proportional to turnover, equivalent to 3% of gross income — which is a game changer for the largest illegal operators.
The stated objective is clear: to strengthen deterrence, ensure operator compliance and restore balance to the online gambling market in the Netherlands.
In 2025, fines remain modest despite everything
Despite the new framework, some penalties remain low — for now. In 2025, the Ksa issued four fines against illegal online casinos. The highest was against the Winning Poker Network, amounting to £1.275 million. Others, for legal entities such as BetCity and Unibet, amounted to €2.65 million and €4 million respectively.
These amounts may seem high, but given the actual turnover of these platforms, they could still be largely insufficient to effectively deter the largest operators.
During his speech, Paul Benner indicated that the Ksa once again had the capacity to make reliable turnover estimates. This marks a return to a more dissuasive method of sanctioning based on the volume of activity. In future, fines will no longer be limited to a simple standard amount, but will be able to reflect the economic scale of illegal activities.
As 2025 draws to a close, the Dutch gambling authority is playing its trump card. Thanks to the recovery in turnover estimates, the Kansspelautoriteit is brandishing a renewed threat: fines now indexed to the actual size of illegal operators. It remains to be seen whether this change in stance will really change the situation — or whether, as its head admits, it will be nothing more than a publicity stunt.