Regulating Gaming in Ireland
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MAYO (Tel: 01 – 6476834/37 or 1890 213434; Fax: 01 – 6476843 or 094 - 9378964) or through any bookseller. I.S.B.N: 0-7557-7600-3 Tá leagan Gaeilge ar fáil den tuarascáil seo. €10.00 30-01 03/08 (500) Brunswick Press Ltd. (18571) Preface The Government decision to establish this Committee is timely. Gaming is governed by the Gaming and Lotteries Act, 1956. That relic of social history is utterly unsuited to effectively regulate gaming in a modern, wealthy European state. When it was enacted foreign travel was rare, the first Planning Act had yet to be passed, bingo was called pongo and much of the Oireachtas debates concerned protecting the livelihoods of persons providing gaming at carnivals. Now one can travel to the casinos on the French Riviera in the same length of time it takes to travel by train from Dublin to Cork, Ireland has adopted decimal currency and joined the European Union, local authorities can control land use by means of a sophisticated planning and development system and there is a great demand for all types of gambling in the State. Some of that demand is for betting. Betting is outside of the Committee’s terms of reference and is referred to only where necessary to provide a contrast with gaming. Casinos have been established in the State and purport to be bona fide members’ clubs. Some indeed may be. They are entirely unregulated. The Act of 1956 does not make provision for casinos. Any bona fide members’ club providing casino services is doing so pursuant to a provision enacted with the purpose of allowing card-playing in private dwelling houses. Gaming machines can be found in amusement halls throughout the State including areas in which they are not permitted by law. The Committee is aware of one type of gaming machine which accepts €500 notes. The Act of 1956 provides a maximum stake in gaming machines of 6d and a maximum prize of 10 shillings. The Act is not being enforced and that brings the law into disrepute. The Act of 1956 provides in Part III for a primitive form of “all or nothing” regulation in which a local authority may permit gaming in amusement halls and funfairs, or may prohibit it entirely. Neither option is satisfactory. The recommendations in this Report provide for a modern, nuanced and effective system of regulation of gaming in accordance with the Principles of Better Regulation, thereby protecting consumers, protecting the vulnerable and keeping criminal and subversive elements from infiltrating the industry. In addition to establishing such regulation, strict enforcement of what is recommended in this Report is necessary to achieve those objectives. Remote gaming is a multi-national, multi-billion euro financial services industry which has similarities to the major industries that Ireland has attracted by clear, efficient and focussed policies. Developments in other jurisdictions have led to this industry to look for a well-governed, business friendly, fully sovereign jurisdiction. Ireland has an international reputation for excellence in information and communication technology as well as in the provision of international financial services. This Report points the way to realising many potential synergies available to Ireland in this area. I would like to thank my Committee for the expertise and experience that they have brought to our deliberations both in plenary committee meetings and in sub-committee meetings. Not for the first time I have been struck by the wealth of talent available in the civil service and which was on display in this Committee. The Committee was fortunate in having an enthusiastic and hard-working secretariat in Philip McCormack, Clodagh Moore and Amber Synnott. John Roycroft, as well as serving on the Committee, co-ordinated the work of the Committee and its secretariat. I would also like to thank the persons who responded to the Committee’s calls for submissions and took the time and effort to communicate their views and suggestions. This Report is richer for their input. Finally I would like to thank the Tánaiste and Minister for Justice, Equality and Law Reform, Michael McDowell S.C., T.D. for his support for the work of the Committee. Michael McGrath Chairman Regulating Gaming in Ireland - Report of the Casino Committee Table of Contents Page No. Chapter One: Background and Summary of Recommendations 1.1 Establishment of the Casino Regulation Committee 1 1.2 Background to the Establishment of the Casino Regulation Committee 1 1.3 Work of the Casino Regulation Committee 4 1.4 Public Policy Objectives 5 1.5 Recommendations and Conclusions 6 Chapter Two: The Gaming and Lotteries Act 1956 – Gaming: A General Assessment 2.1 Introduction 19 2.2 Review of Other Official Reports and the 1956 Act 19 2.3 Adoption of the Gaming and Lotteries Act 1956 21 2.4 The Role of Local Authorities Under the 1956 Act 23 2.5 Observations by the Casino Committee 24 Chapter Three: An Overview of International Regulatory Practices 3.1 Gaming Regulatory Structures in Europe: “One Size Fits All?” 29 3.2 Global Lessons on the Legalisation of Casino Gaming 37 3.3 Gaming Regulatory Structures outside Europe 37 3.4 Gaming in the United States 40 3.5 Gaming in Great Britain 41 3.6 Gaming in Australia 45 3.7 Gaming in New Zealand 46 3.8 Gaming in Canada 54 Chapter Four: Regulating Gaming in Ireland 4.1 Overview of the Current Gambling Industry in Ireland 61 4.2 The Regulation of Gaming in Ireland 68 4.3 The Gaming Regulatory Authority 74 4.4 Approaches to Licensing 76 4.5 Money Laundering 80 4.6 Gaming Licence and Gaming Machine Typologies 81 4.7 Taxation 93 4.8 Possible Legislative Content 99 4.9 Licence Requirements 100 4.10 The Operation of the Gaming Premises 101 4.11 Powers of the Gaming Regulatory Authority 102 4.12 Remote Gaming 102 4.13 Advertising 103 4.14 Problem Gaming 103 4.15 Enforceability of Contracts 103 4.16 Offences and Sanctions 104 4.17 The Establishment of an Interim Gaming Regulatory Authority 104 4.18 A Proposed Response to Current Developments 105 Chapter Five: Remote Gaming 5.1 What is Remote Gaming? 106 5.2 The Development of Remote Gaming 106 5.3 Technological Complexities 109 5.4 Overview of International Situation 111 5.5 Regulatory Options Available to Ireland 112 5.6 Views of the Committee and Recommendations as to a Possible Licensing Regime for Remote Gaming 113 5.7 Conclusion 116 Appendices (See List of Tables and Appendices Overleaf) 117 References 198 Regulating Gaming in Ireland - Report of the Casino Committee List of Tables Page No.