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2005 California Problem Gambling Situational Assessment

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2005 California Problem Gambling Situational Assessment SITUATIONAL ASSESSMENT OF PROBLEM GAMBLING SERVICES IN CALIFORNIA This assessment was developed under contract by the California Council on Problem Gambling on behalf of the Office of Problem Gambling, Program Services Division, California Department of Alcohol and Drug Programs Contract #03-00227 Primary Authors: Rachel A. Volberg Lori Rugle Richard J. Rosenthal Tim Fong March 2005 ACKNOWLEDGEMENTS This project was developed under contract by the California Council on Problem Gambling (CCPG). The authors gratefully acknowledge the substantial efforts of the staff, members and directors of CCPG who administered the contract and prepared summaries of the various activities in which the Council has engaged to assist problem gamblers and their families over the past five years. We also greatly appreciate the work done by Bensinger DuPont & Associates to carry out a substantial Email and telephone survey to help assess the extent and quality of problem gambling services in California. This project was commissioned and funded by the Office of Problem Gambling, California Department of Alcohol and Drug Programs. Finally, we thank all of the individuals who took the time to respond to our questions and surveys and provide information about services for problem gamblers in California. The views and opinions expressed in this report are those of the authors and do not necessarily reflect the views of the California Department of Alcohol and Drug Programs, the Office of Problem Gambling or the Office of the Governor of California. Suggested Citation: Volberg, R.A., Rugle, L., Rosenthal, R.J. & Fong, T. (2004). Situational Assessment of Problem Gambling Services in California. Sacramento, CA: Office of Problem Gambling, California Department of Alcohol and Drug Programs. CONTENTS EXECUTIVE SUMMARY ............................................................................................................. i 1. INTRODUCTION .................................................................................................................. 1 1.1. Defining the Terms .........................................................................................................2 1.2. The Importance of Strategic Planning ............................................................................ 3 1.3. Purpose of Situational Assessments................................................................................ 4 1.4. Best Practices vs. Current Practices................................................................................ 5 1.5. A Brief History of Legal Gambling................................................................................ 5 1.6. Overview of Report....................................................................................................... 10 2. METHODOLOGY ............................................................................................................... 11 2.1. Literature Reviews........................................................................................................ 11 2.2. Assessing Services for Problem Gamblers in California.............................................. 12 3. CURRENT PRACTICES IN PROBLEM GAMBLING SERVICES.................................. 15 3.1. The Prevalence of Gambling Problems in the Community .......................................... 15 3.2. Risk Factors for Problem Gambling ............................................................................. 21 3.3. Regulation and Policy as Prevention Strategies............................................................ 30 3.4. Funding and Organization of Problem Gambling Services .......................................... 36 3.5. Public Education and Awareness Campaigns............................................................... 38 3.6. Training Programs for Professionals and Industry ....................................................... 47 3.7. Helplines ....................................................................................................................... 53 3.8. Treatment ...................................................................................................................... 55 4. CURRENT PRACTICES IN PROBLEM GAMBLING SERVICES IN CALIFORNIA ... 69 4.1. Regulation and Policy as Prevention Strategies............................................................ 69 4.2. Prevalence Research in California................................................................................ 69 4.3. The California Surveys ................................................................................................. 71 4.4. Public Awareness and Education Activities ................................................................. 78 4.5. Training Programs for Professionals and Industry ....................................................... 83 4.6. Helplines ....................................................................................................................... 87 4.7. Treatment: Coverage of Costs ...................................................................................... 90 4.8. Research and Evaluation............................................................................................... 92 5. CONCLUSION..................................................................................................................... 93 5.1. Limitations of Report.................................................................................................... 93 5.2. General Conclusions ..................................................................................................... 94 6. REFERENCES ..................................................................................................................... 98 LIST OF TABLES Table 1: Telephone Survey Sample Characteristics ..................................................................... 13 Table 2: Spending on Problem Gambling Services, 2004 ............................................................ 37 Table 3: Spending on Problem Gambling Services in the U.S..................................................... 37 Table 4: Calls Received by the NCPG Helpline........................................................................... 53 Table 5: Criteria for Three National Gambling Counselor Certifications .................................... 61 Table 6: Comparing Problem Gambling Prevalence Rates .......................................................... 70 Table 7: Comparing Non-Problem Gamblers and Problem Gamblers in California.................... 71 Table 8: Survey Respondents and Topic Areas ............................................................................ 72 Table 9: Problem Gambling Awareness & Education.................................................................. 73 Table 10: Attended Problem Gambling Training in Last 5 Years................................................ 75 Table 11: Law Enforcement Referrals.......................................................................................... 76 Table 12: Problem Gamblers Receiving Treatment in California, Past Year............................... 77 Table 13: Characteristics of Callers with Problem, 2003 ............................................................. 88 Table 14: Primary Gambling Preference Among CCPG Callers with Problem........................... 89 EXECUTIVE SUMMARY Introduction The purpose of this report is to assist the Office of Problem Gambling in implementing the provisions of Assembly Bill 673 (Chapter 210, 2003 Statutes) which authorized the establishment of problem gambling services in California. The report identifies the current status of problem gambling research, programs and services in California and internationally and is the first step in California’s problem gambling strategic planning. Throughout this report, the term problem gambling is used to refer to the entire spectrum of gambling-related difficulties that individuals experience. At its most severe end, this continuum includes pathological gambling, a recognized psychiatric disorder. The gambling industry in California has grown exponentially over the last twenty years, with revenues rising five-fold since 1997, from $2.5 billion to an estimated $13 billion in 2003. For most people, gambling is an occasional and enjoyable experience. For some people, however, gambling leads to debilitating problems that can also result in harm to people close to them and to the wider community. Some forms of gambling, most notably those that are continuous in nature and involve an element of skill or perceived skill, have a particularly strong association with problem gambling. While it is generally estimated that between 2 percent and 5 percent of the adult population are problem or pathological gamblers in jurisdictions with ‘mature’ gambling markets, prevalence rates among regular gamblers can be as high as 25 percent. Although legal gambling is well-established in California and promises continued rapid growth, little is known about Californians who experience problems related to their gambling or what measures would most effectively minimize or mitigate their problems. The most promising way of preventing and mitigating problem gambling is through a public health approach that encompasses a broad range of activities. The range of activities can be grouped into six major areas: 1. Identifying and maintaining key indicator data which will serve to monitor regular gambling behavior and problem gambling. 2. Strategic planning/coordination
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