sou · GWB3124 · 2008-12-15 00:00:00 — Given the above-stated assessments regarding the foundations of current gaming regulations and the requirements of EC law on national regulations, the Inquiry on Gambling has found that Swedish gaming regulations may be considered compatible with the require- ments of EC law. The Inquiry on Gambling was also required to take into account how future regulations should confront the issues of control faced by current regulations when gambling on foreign websites takes place beyond the control of Swedish law. The Swedish Inquiry on Gambling has identified three possible courses of action to choose between for future gaming regulations. Three alternatives for future regulations Alternative 1 entails maintaining and tightening current gaming regulations. Alternative 2 entails opening up Internet gaming to new operators. Alternative 3 entails opening up a certain form of gaming to new operators. The Inquiry on Gambling has assessed the different alternatives as follows: The Inquiry on Gambling has found that the foundations of the current gaming regulations, that is, both their objectives and pur- poses, are in agreement with EC law. Against this background, it is the assessment of the Inquiry on Gambling that EC law does not require the Swedish gaming market to be opened to new operators. However, maintaining existing regulations would require a restrict- tive gaming policy with the overarching objective of counteracting gambling addiction and criminality. The technological trend and the Internet entail international compe- tition in Internet gaming, with the prominent forms of gambling being Internet casinos, Internet poker, Internet bingo and betting with odds. The technical trend has brought with it a problem of con- trol for Swedish gaming regulations. Taking into account only the technological trend and Internet gambling, and consequently the issue of international competition, one might consider tackling the control issues that have arisen by opening up Internet gambling to new operators. As is apparent from the directives, however, the most proble- matic forms of gambling shall be restricted to the most controlled formats. In the assessment of the Inquiry on Gambling, the most problematic forms of gambling include automatic gambling , Internet casino and interactive games (Internet poker, Internet bingo and Internet scratch cards). Permitting new operators of forms of gambling would require Internet poker and Internet bingo, at least, to be opened for licensing. In the Inquiry on Gambling's assessment of its directives, one of the basic requirements for the Inquiry is that the most problematic forms of gambling should be subject to the strictest control. Given the Inquiry on Gambling's assessment that interactive forms on gambling (including Internet poker) should be included among the most problematic forms, the Inquiry finds no reason to propose that Internet gambling be opened for licensing. An alternative approach in confronting the issue of uncontrolled gambling on foreign websites could be to open up one type of gamb- ling to new operators. Given the combined prerequisites of the directives to be taken into account in the assessment of what forms of gambling could be opened to new operators, the Inquiry on Gambling has found that betting on sports competitions, the Swedish selection rounds to the and the itself are the Internet- based forms of gambling that could be opened. However, the Inquiry on Gambling has found that such an opening would be too limited to be attractive to new operators. Since a broader opening of Internet gambling is out of the question given the Inquiry on Gambling's assessment of the most problematic forms of gambling, the Inquiry has instead considered whether any form of gambling should be opened up for new operators, including betting agents. The Inquiry on Gambling has found that the form of gambling that could be considered for licensing in a partially new permit system is betting (odds and pools), with the exception of betting on horse racing, and that it should be possible to provide this form of gambling through betting agents and via the Internet. The Inquiry on Gambling's choice of alternative In reviewing the directives' three directions for future gaming regu- lations, the conclusion is that there are two alternative choices for fut- ure gaming regulations – to retain the current system, or to open up one form of gambling. Since the choice of model is based on political standpoints, the Inquiry on Gambling has elected to present two alternative propo- sals for future gaming regulations. This alternative involves retaining and tightening current gaming regulations. According to this alternative, no proposal is made to open the market for new operators. However, maintaining existing regulations would require a gaming policy with the overarching objective of counteracting gaming dependency and criminality. These requirements, stipulated by the government in its directives to the Inquiry on Gambling, form the basis of the proposal presented for new gaming regulations. To confront the problem of uncontrolled gambling on foreign websites, a second alternative should also be considered. This suggests opening up for new operators. Permits shall cover betting (odds and pools), with the exception of betting on horse races. Permits would convey rights to provide these forms of gambling at betting agencies or via the Internet. The partially new permit model would be regulated through the new Lotteries Act proposed by the Inquiry. The purpose of the new Lotteries Act and other regu- lations would thereby also cover the new operators. According to the new Lotteries Act, a ceiling would be set on winnings for all forms of gambling, for example. It is the assessment of the Inquiry on Gambling that a basic requirement for being able to propose a license system for the busi- ness community on a national basis is that licensees be afforded protection within the national system. Proposing a national system in which certain forms of gambling are opened to the business community would require legislation, as far as possible, to guarantee the national market. Proposing a national license while also allow- ing foreign gambling companies with permits from other countries to offer gambling via the Internet would not serve any purpose. Under such conditions, there would be no incentive to apply for a license in if licensing conditions are more favourable in another country. Consequently, in the Inquiry on Gambling's assess- ment of the situation, the ban on promotion included in the legi- slation (38 § Lotteries Act) must be made more effective. For gaming regulations to be sustainable in the long term, they must be in agreement with EC law and the implementation of the government's gaming policy must be feasible. In the view of the Inquiry on Gambling, gaming regulations that are sustainable in the long term should necessitate new lottery legi- slation on the basic structure of the current Lotteries Act, thereby verifying the agreement of the regulations with EC law (High Administrative Court 2004 ref. 95). A new Lotteries Act should be supplemented with provisions designed to strengthen the protective intentions of the Act, such as marketing rules, age limits, statutory regulation of the public and government-controlled companies and a new permit and supervisory organisation. The new Lotteries Act should be reworked as framework legi- slation with a clear division of responsibilities between the Riksdag, the government and the supervisory authority. The Act should state all principal regulations for lotteries, while the government should assume responsibility for gaming policy by means of instruc- tions in the form of an ordinance. It is proposed that the name of (Lotteriinspektionen) be changed to the Swedish Gaming Market Supervisory Authority (Spelmarknads- inspektionen) and that it be given a clear role as the permit and supervisory authority for all lotteries in requiring permits. Consequently, the new framework legislation will also regulate permit allocations for new operators. According to the new Act, the most problematic forms of gamb- ling will be restricted to , these being casino games, automatic gaming and interactive games. non-governmental organisations will no longer have opportunities to organise interactive games on the Internet. No other changes are proposed in the current division of the market between Swedish operators. As its second alternative, the Inquiry on Gambling proposes a partially new model for the allocation of permits according to which businesses may also obtain licenses. This model shall cover betting (odds and pools), with the excep- tion of betting on horse races, both via the Internet and at betting agencies. According to this proposal, would open up for new operators to organise betting in a national market. The object- ive of opening up for new operators is to channel gambling to forms that are subject to Swedish permits and control. For it to be possible to propose such an opening, the Inquiry on Gambling stipulates that this be on the condition that the promotions ban included in the Lotteries Act be tightened. Otherwise, it will not be possible to achieve the objectives of the government's policy. Necessary additional restrictions would include blocking IP addresses and domain names for lotteries not organised in accordance with the Lotteries Act, and blocking payment services for stakes in such lotteries. With this proposal, the Inquiry on Gambling makes the assess- ment that should no longer conduct the forms of gambling opened up to other operators. Maintaining existing regulations (Alternative 1) would require a gaming policy with the overarching objective of counteracting gamb- ling addiction and criminality. According to the prerequisites stated in the directives for the Inquiry and that will be accounted for below, the proposals included in alternatives 1 and 2 are largely equal except as they regard the partially new system. Consequently, the report contains one legi- slation proposal and outlines one solution. In the event that the government decides to proceed by retaining the current system, this can be achieved by implementing all chapters except chapter 15, which deals with the opening up the market to new operators. The responsibilities covered in chapter 15 would instead remain with . The proposals in more detail A new Lotteries Act – framework legislation Introduction of a new Lotteries Act. This Act would be based on the current Lotteries Act, albeit reworked as framework legislation. All monetary gambling shall be statutorily regulated by the new Act. The practical legal solution is based on a clear division of re- sponsibility between the Riksdag, the government and authorities. All principle provisions regarding lotteries are to be stated in the Act. The Act would delegate to the government a broadened mandate to implement gaming policy by means of instructions in the form of ordinances. It is also proposed that authorities be given increased regulatory powers. A partially new permit system for new operators would also be regulated by the new Lotteries Act. Statutory regulation of national and government-controlled companies The operations of the government-controlled companies () are regulated by the Act. The government would lose its opportunity to allocate permits with the support of 45 § of the Lotteries Act. New permit and supervisory authority A new model for supervision and the allocation of permits would be introduced. All allocations of permits and supervision of lotte- ries would be centralised to a single authority, (Lotteriinspektionen), whose name is proposed to be changed to the Swedish Gaming Market Supervisory Authority (Spelmark- nadsinspektionen). The role of the county administrative boards as a supervisory authority would cease. The role of the municipalities as the super- visory authority for local lotteries would also cease. municipalities' role as the registration authority for local lotteries would be a requirement. Allocation of permits to non-government organisations The consideration of whether a lottery may be assumed to provide applicants with reasonable surplus proceeds shall be made taking applicants' total lottery operations into account. Opportunities for non-government organisations to organise lotteries and registration lotteries should be expanded. New general marketing rules shall be introduced. Accordingly, mode- rations shall be observed in all marketing of lotteries. Marketing may not particularly target or feature children or young people below the age of 25. It shall not be permitted to market interactive games and gambling on automatic gaming at all. A general age limit of 18 is proposed for participation in lotteries. Where there is special cause, it shall be possible to grant exceptions to this ban. Agents assigned lottery sales shall be required to hold a special permit. To receive such a permit, agents are required to be suitable for conducting such operations. In principle, permits may not be allocated to agents whose busi- ness operations hold permits to serve strong beer, wines or spirits in accordance with the Alcoholic Beverages Act (1994:1738). Lottery organisers and agents shall undertake certain measures to prevent gaming dependency. Firstly, information on the risks of gambling shall be provided. Secondly, lottery organisers shall, among other measures, develop action plans to counteract risks associated with gambling. The government or its assigned authority shall communicate instruc- tions regarding requirements for technical equipment used by organisers for their lotteries. The sanctions system is to be made more efficient. Here it can be mentioned that injunctions and bans associated with fines shall take immediate effect unless otherwise decided. In addition, in connection with infractions of the Lotteries Act, the Swedish Gaming Market Supervisory Authority shall be able to combine a reprimand or warning with a fine. Furthermore, the Authority shall be able to impose fines on permit holders who are late in submitting details required by the Authority. Specific to automatic gaming To be able to combat illegal automatic gaming more effect- ively, a new definition of such devices is to be introduced. Expert council on gaming dependency Against the background of the Swedish Gaming Market Super- visory Authority's new duties, an advisory expert council on gaming dependency is to be established under the Authority's auspices. The governance of AB by its owners shall become more by utilising the opportunities conveyed by the rules that apply to that type of corporate structure. It is proposed that the new Lotteries Act include a partially new permit model for certain lotteries. A permit system would be intro- duced whereby the basic requirements for securing a permit would be stated in the Lotteries Act. What forms of gambling should licenses cover? Permits shall cover betting (odds and pools), with the exception of betting on horse races. One type of permit shall be allocated. Permits would convey rights to provide these forms of gambling at betting agencies or via the Internet. No limit on the number of permits is proposed. The permit allocation process and the supervision of a new permit model shall be the responsibility of the Swedish Gaming Market Supervisory Authority. What requirements will be imposed? A general condition is that permits to organise lotteries may only be allocated if it can be assumed that operations will be conducted in a healthy and safe and generally in accordance with the regulations in the Lotteries Act and other ordinances regulating operations. Particular requirements shall apply regarding applicants' suit- ability to conduct operations. Applicants shall be required to de- monstrate that they are suitable to conduct such operations with regard to their personal, financial and other conditions. For compa- nies, this assessment shall include the president and others with a decisive influence over operations. In addition, gambling organisers shall identify, steer, report on and maintain control over the risks with which their gambling operations are associated. In this regard, gambling organisers shall ensure satisfactory internal control. Furthermore, gambling orga- nisers' operations shall be conducted in such a way that it is possi- ble to gain an overview of their structure, connections with other companies and positions. In the new framework legislation substantial power of regu- lation will be delegated to the government or the Swedish Gaming Market Supervisory Authority. It shall be possible for the Swedish Gaming Market Supervisory Authority to issue a set of rules and regulations regarding the allocation of permits. It is proposed that the government or its assigned authority be empowered to determine requirements for different forms of gamb- ling, payment of winnings and other requirements on the organi- sation of betting. Requirements for limited companies Permits may only be allocated to a limited company or equivalent that is headquartered in the EES area. Tightened ban on promotions The ban on promotions in the new Lotteries Act should be complemented in part by a regulation banning the mediation of stakes in unlawful lotteries, that is, such monetary transactions may be stopped by means of the retail codes used in the electronic card payment system and, in part by a regulation stating that communications companies may not mediate communications from their to domain names and IP addresses used for unlaw- ful gambling services. Possible new operators in the Swedish gaming and lottery market shall for taxation purposes be covered by the Lottery Tax Act. The current general exemption from lottery tax for govern- ment-owned gambling companies is to be abolished. It is proposed that physical poker tournaments not be permitted. It is the view of the Swedish Inquiry on Gambling that it is not currently possible to assign responsibility for particular care and treatment of gaming dependency to the municipalities. The Swedish Inquiry on Gambling concludes that, as a partial long-term solution, be awarded grants as partial financing for the development of evidence- based programs of care and treatment. Furthermore, , in consul- tation with , in Health Care (SBU) and the Authorities and Regions, be given the task of supporting the development of programs for the care, treatment and other support for people addicted to gambling, establishing a national register of organisers of such operations, developing a plan for the evaluation of all care, treatment and other forms of support currently offered to gambling addicts in , and subsequently enter the evaluations made in the register. The Swedish Gaming Market Supervisory Authority should be given a special assignment to initiate research in particular areas (commiss- ioned research), evaluate applications and allocate funds to others for research (basic research) of relevance to the Swedish gaming market. The proposals of the Swedish Inquiry on Gambling entail a decrease in the government's revenues and an increase in its costs. Like earlier commissions, the Inquiry on Gambling proposes that the difference be absorbed by the government. The proposals of the Inquiry on Gambling require the develop- ment of attendant legislation. It is judged that these, like the pro- posals of the Inquiry on Gambling, must be announced in accordance with EU directive 98/34, and, accordingly, it is estimated that it will be possible for the new gaming regulations to enter into force on 1 January 2011. lotterilag (2008:000) Härigenom föreskrivs följande. 1 § Bestämmelserna i denna lag syftar till att lotterier ska anordnas sunt och säkert under offentlig kontroll, att motverka sociala och ekonomiska skadeverkningar samt spelberoende, att motverka brott i samband med lotterier, att skydda konsumenterna och att kanalisera spelandet till lotterier som anordnas med stöd av denna lag. 2 § Denna lag ska tillämpas på lotterier som anordnas för allmän- heten. Ett lotteri ska anses anordnat för allmänheten även när det som villkor för deltagande krävs medlemskap i en viss sammanslutning, om denna väsentligen har till uppgift att anordna lotterier eller när lotteriet annars med hänsyn till omfattningen eller till villkoren för deltagande är att jämställa med ett lotteri som är anordnat för all- mänheten. Lagen ska tillämpas också på lotterier i form av bingospel, automatspel, roulettspel, tärningsspel, kortspel och liknande spel som inte anordnas för allmänheten, om spelet anordnas i förvärvs- syfte. Lagen ska tillämpas också på lotterier som i anordnas för allmänheten, även om svenskt deltagande i lotteriet är uteslutet. 3 § Lagen tillämpas inte på spel enligt kasinolagen (1999:355). Lagen gäller inte heller för svenska statens premieobligationslån. Den tillämpas inte heller på spel enligt lagen (1982:636) om anordnande av visst automatspel. 4 § Med lotteri avses i denna lag en verksamhet där en eller flera deltagare, med eller utan insats, kan få en vinst till ett högre värde än vad var och en av de övriga deltagarna kan få. 1.lottning, gissning, vadhållning och liknande förfaranden, 2.marknads- och tivolinöjen, 3.bingospel, automatspel, roulettspel, tärningsspel, kortspel, kedjebrevsspel och liknande spel. Vid bedömningen av om en verksamhet är ett lotteri ska hänsyn tas till verksamhetens allmänna karaktär och inte endast till den större eller mindre grad av slump som finns i det enskilda fallet. Med vinst avses i denna lag även rätt till fortsatt spel. 5 § I denna lag avses med Bingospel: ett lotteri 1.som förutsätter att deltagaren är närvarande på spelplatsen och där köper en bingobricka eller liknande, 2.där vinstmöjligheterna är beroende av om de nummer som dras sammanfaller med numren på bingobrickan eller liknande, och 3.där deltagaren genast gör anspråk på sin vinst. Automatspel: spel på mekaniska eller elektroniska spelautomater eller liknande spelanordningar. Varuspelsautomat: en spelautomat eller liknande spelanordning som betalar ut vinst i form av varor och där vinstmöjligheterna helt eller delvis beror på slumpen. Penningautomat: en spelautomat eller liknande spelanordning som kan ge spelaren en vinst i form av pengar och där vinstmöjlighe- terna huvudsakligen beror på slumpen. Värdeautomat: en spelautomat eller liknande spelanordning som betalar ut vinst bara i form av värdebevis, spelpolletter eller lik- nande och där vinstmöjligheterna huvudsakligen beror på slumpen. Skicklighetsautomat: en spelautomat eller liknande spelanordning som betalar ut vinst i form av pengar och där vinstmöjligheterna helt eller delvis beror på spelarens skicklighet. Interaktiva spel: lotterier som förmedlas med hjälp av elektromagnetiska vågor och där deltagandet endast kan ske med hjälp av elektromagnetiska vågor. Kedjebrevsspel: spel i vilka vinstmöjligheterna huvudsakligen beror på antalet deltagare som efter hand inträder i spelet. Kvalificerat innehav: ett direkt eller indirekt ägande i ett företag, om innehavet representerar eller mer av kapitalet eller av samtliga röster eller annars möjliggör ett väsentligt inflytande över ledningen av företaget. Allmänna förutsättningar för att få anordna lotterier 6 § Det är förbjudet att anordna lotteri utan tillstånd, om något annat inte följer av denna lag. Allmänna förutsättningar för tillstånd, registrering m.m. 7 § Lotterier enligt denna lag får anordnas endast om det kan antas att verksamheten kommer att bedrivas sunt och säkert samt i övrigt på ett från allmän synpunkt lämpligt sätt enligt bestämmel- serna i denna lag och andra författningar som reglerar verksamhe- ten. 8 § Tillstånd får endast lämnas till den som anordnar lotteri.