The Netherlands Authority for Consumers and Markets (ACM) has announced plans to conduct a market investigation into digital learning materials used in secondary education, citing concerns that the sector may not be functioning effectively. The authority has now completed its exploratory phase and published the framework outlining how the investigation will be conducted, while inviting stakeholders to share their experiences and insights.
The study will examine how the market for digital and associated paper-based educational materials operates, focusing in particular on procurement choices available to schools, price developments, barriers to entry for new suppliers, and potential inefficiencies such as the waste of unused teaching materials. The ACM expects to complete the investigation and publish preliminary findings in autumn 2026.
The regulator decided to launch the inquiry after receiving signals suggesting that schools may not always enjoy sufficient freedom when selecting educational materials. According to the ACM, the Dutch market for teaching materials is highly concentrated, with three major suppliers accounting for more than 70 percent of the market. In some school subjects, there is reportedly only a single provider. This level of concentration could limit competition and place pressure on both choice and affordability for schools.
The investigation will focus on digital learning materials used in secondary education, including the related paper components often supplied under so-called “License Folio” arrangements. The ACM intends to analyse price trends, the extent to which schools can freely choose their suppliers, and whether switching between providers is practical in the current market environment.
Particular attention will also be paid to the contractual and technical conditions that may influence competition. Education organisations have previously raised concerns that multi-year licences can make it difficult for schools to change suppliers, while some contract models require institutions to purchase new licences and workbooks each year, even when some materials remain unused.
In addition, the ACM plans to assess whether structural factors are discouraging new entrants from entering the market or expanding their offerings. The authority will also investigate whether waste is occurring within the system, for example when workbooks included in bundled packages are never used.
The study will also consider broader technological developments in education, including the role of digital platforms and educational technology tools designed to support teaching and learning. In this context, the ACM will evaluate whether the market environment provides sufficient room for innovation and whether technical interoperability between digital systems is effective.
The authority will also examine whether current practices comply with the European Union’s Data Act, which entered into force last year. Among other provisions, the legislation aims to make it easier for organisations to switch between cloud-based IT services and requires greater interoperability between digital systems.
As part of the research process, the ACM will gather information from market participants in the months leading up to the summer. The authority plans to request data from companies and hold discussions with stakeholders including schools, sector organisations, academic experts, policymakers and other relevant parties.
Stakeholders have also been invited to submit written contributions describing their experiences and concerns regarding the market. Submissions can be made to the ACM until 30 April 2026.
The preliminary results and potential recommendations from the study are expected to be published in the autumn, followed by a consultation period allowing stakeholders to comment on the draft findings. The final report is scheduled for publication by the end of 2026.
The ACM noted that its market study will run in parallel with a separate investigation conducted by the Dutch Ministries of Education, Culture and Science and Economic Affairs. Where relevant, the authority plans to incorporate findings from that process into its own analysis of the sector.
