sou · H8B377 · 2020-12-14 00:00:00 — Utredningen föreslår att denna begränsning görs permanent och att regeringen följer upp och utvärderar effekterna av förlustgränsen för att kunna ta ställning till om gränsen bör sänkas. Andra åtgärder för att minska skadeverkningarna av spel Spelinspektionen och har sedan omregleringen bedrivit en aktiv tillsyn över efterlevnaden av spellagen. Flera ären- den är fortfarande föremål för prövning i domstol. Spellagen är en ramlag och spelregleringen innehåller därför omfattande bemyn- diganden till Spelinspektionen att föreskriva om mer preciserade regler samt ge vägledning som ännu inte fullt ut utnyttjats. När det gäller omsorgsplikten (14 kap. 1 § spellagen) har Spelinspektionen påbörjat ett arbete som syftar till att tydliggöra myndighetens bedömning och ge stöd och vägledning till licenshavarna avseende kraven gällande omsorgsplikt. Utredningen bedömer att omsorgs- plikten är en av de viktigaste bestämmelsen i spellagen för att minska skadeverkningarna från spel. är den sannolikt en av de bestämmelser i spellagen som medför störst utmaningar i tillämp- ningen. Utredningen bedömer att en mycket viktig uppgift för Spel- inspektionen nu bör vara att skapa ökad tydlighet avseende vad som krävs av licenshavarna vid tillämpning av omsorgsplikten. Andra åtgärder som kan stärka omregleringen I utredningsdirektiven anges att det, bl.a. till följd av vad som kommer fram i Statskontorets uppföljning av omregleringen av spel- marknaden, kan uppstå behov av att genomföra ändringar i spel- regleringen. Utredningen har därför getts möjlighet att överväga och lämna förslag till andra åtgärder som behövs för att stärka genom- förandet av omregleringen av spelmarknaden. Ökad möjlighet att följa utvecklingen på spelmarknaden Det finns brister i tillgången till information om spelmark- naden. Utredningen bedömer att nuvarande reglering inte ger till- räckliga förutsättningar för Spelinspektionen, och i förlängningen även andra berörda myndigheter och aktörer samt regering och riksdag, att på ett ändamålsenligt sätt följa utvecklingen på spel- marknaden. Utredningen föreslår därför att en ny lag om uppgifts- skyldighet i fråga om utvecklingen på spelmarknaden införs som ger Spelinspektionen rätt att förelägga en licens- eller tillståndshavare att tillhandahålla uppgifter om spelets omfattning. Ökad flexibilitet i de tekniska kraven Spellagen omfattar olika verksamheter, från mindre fysiska lotterier och bingoverksamheter till sådana som tillhandahåller kasino eller vadhållning, som medför skilda risker ur ett konsumentskydds- och säkerhetsperspektiv. Utredningen bedömer att det i spelregleringen saknas tillräckliga förutsättningar för Spelinspektionen att anpassa de tekniska reglerna och bedömningsförfarandena som omgärdar dessa till verksamheternas skilda förutsättningar. Utredningen före- slår därför ett tydligare bemyndigande för Spelinspektionen i det avseendet. Licensers giltighet vid prövning av förnyad licens Det är licenshavarens skyldighet att inkomma med en ansökan om förnyelse av licens innan licensens utgång, och i ansökan styrka att förutsättningarna för ny licens är uppfyllda. I de fall Spelinspektionens handläggningstider på grund av hög arbetsbelast- ning innebär att beslut om förnyelse av licens inte meddelats innan utgången av den gällande licensen, ligger dock saken utom licens- havarens kontroll. I likhet med vad som gäller i lagstiftning på vissa andra områden föreslår utredningen därför att en utgången licens under vissa förutsättningar ska gälla som Spelinspek- tionen prövar en ansökan om förnyad licens. Anpassade regler om bonusar Enligt spellagen får en bonus endast erbjudas eller lämnas vid det första tillfället då en spelare spelar på något av licenshavarens spel. Regeln infördes i syfte att skydda konsumenters hälsa sedan reger- ingen konstaterat att bonuserbjudanden hade blivit ett attraktivt men också aggressivt sätt att dels locka till sig spelare, dels behålla dem. De lotterier som erbjuder spel för allmännyttiga ändamål har en lång historik av att erbjuda och rabatterade lotter vid försäljning av sina produkter och den typen av värdeerbjudanden är en del av lotteriernas affärskoncept. Den typ av spel som de allmän- nyttiga organisationerna tillhandahåller är generellt sett spel med låg risk att utveckla spelproblem och det har inte framkommit att de som många av lotterierna använt sig av har bidragit till ett osunt spelande. Utredningen föreslår därför att spel för allmännyttiga ändamål undantas från förbudet att erbjuda eller lämna bonus annat än vid det första speltillfället. Lotteri- och kasinoliknande inslag i datorspel Lotteri- eller kasinoliknande inslag i datorspel, särskilt så kallade loot-lådor, har uppmärksammats såväl i som internationellt . Frågor har väckts både i och utomlands hur man från lagstiftarens sida bör se på inslag i datorspel som, åt- minstone visuellt, har likheter med spel om pengar. Utredningen har varken haft i uppdrag eller tillräckliga förutsättningar för att belysa alla aspekter av hur frågan om hur lotteri- och kasinoliknande inslag i spel bör hanteras. Utredningen bedömer dock att, om ytterligare regler anses nödvändiga för att hantera dessa företeelser, i första hand bör verka för regler på EU-nivå snarare än nationellt och att i vart fall spellagen inte är lämplig hemvist för sådana regler. Det finns enligt utredningen skäl att överväga om, och i så fall hur, frågor om lotteri- och kasinoliknande inslag i datorspel bör inkluderas i berörda myndigheters kunskapshöjande insatser som rör spel om pengar och konsumentskydd. On 1 January 2019 the new regulatory framework for gambling in came into effect. It replaced the earlier monopoly approach with a system of regulation based on a division of the gambling market into one part that is open to competition, chiefly comprising gambling online and betting, one part reserved for gambling for purposes in the public interest, consisting primarily of lotteries and bingo, and one part reserved for the state and mainly comprising the state casinos and gambling on token (Govt 2017/18:220). At the same time as it presented its bill, the Government made the assessment that certain questions linked to the regulatory reform needed to be followed up and made the subject of a separate inquiry. The remit of the present Inquiry has therefore been to look into certain key market issues of this kind arising from the new regulation of the gambling market and, under supplementary terms of reference, certain matters relating to the marketing of gambling. In its interim report “Funding of the horse sector in a gambling market subject to new regulation” (SOU 2020:64), the Inquiry presented its findings on one part of its remit. ’s adaptation to the new regulatory framework One of the tasks of the Inquiry has been to review how has adapted its operations to the new provisions set out in the Gam- bling Act, and to consider what additional measures may be judged necessary to ensure that the restructuring of the company is com- patible with current law. Under the Gambling Act, a company with a licence for state gambling may not concurrently hold a licence for gambling within the part of the market that is open to competition. has restructured its operations in response to the new regulatory framework and has taken certain steps to separate those companies that hold a licence for gambling reserved for the state from the company operating on the part of the market open to com- petition. However, its main trade mark is still used both by the com- panies licensed for state gambling and by , i.e. the part of the group operating in the competitive sector of the mar- ket, which could be problematic from a competition point of view. The question was recently considered by the Authority, but having looked into the matter that agency found no cause to give priority to further investigation of whether this use of the main trade mark constitutes an infringement of competition law. Like the Competition Authority, the Inquiry notes that, at a general level, competitors of seem to have been able to estab- lish themselves well on the market under the new regulatory regime. 70 companies hold licences on the part of the market open to competition, and a number of these, in addition to , have relatively large market shares in the commercial online gam- bling and sports betting segments. As only a short time has elapsed since the Competition Authority announced its decision and as nothing has emerged to suggest that market conditions have changed in any decisive respect since then, the Inquiry sees no rea- son, in the light of the Competition Authority’s review, to question whether the restructuring of that has been undertaken is compatible with current law. Since it may take time for the effects of the new regulatory framework on competition to emerge, how- ever, it is important in the view of the Inquiry that the state continues to monitor developments on the market, for example regarding the use of common resources such as ’s main trade mark. Funding of the sports movement following the regulatory reform The Inquiry has been tasked with considering whether the funding model proposed for the horse sector, or some other suitable model, could be introduced to compensate the sports movement for sport being used as an object of gambling and, if such a model could be introduced, with proposing legislative changes and other necessary measures. In its interim report “Funding of the horse sector in a gambling market subject to new regulation” (SOU 2020:64), the In- quiry concluded that the introduction of a market levy on horse-race betting was unwarranted. As for funding for the sports movement, the Inquiry notes that the movement’s revenue from gambling com- panies through sponsorship has increased since the new regulatory framework for the gambling market was put in place. An interna- tional survey carried out by the Inquiry shows that certain countries, including , have introduced special statutory, copyright-like rights for domestic sport. One of the aims in doing this has been to give sports organisations a legal right to negotiate payments if their events are used as objects of gambling. Experience and evaluations of such systems, however, show that they primarily benefit sports and events with a very high level of attractiveness to gambling oper- ators. The Inquiry understands that getting on for 90 per cent of betting on the Swedish gambling market relates to foreign sporting events. A Swedish regulatory arrangement which, like those of other countries, was restricted to gambling on national sporting events would thus only include a small fraction of the net turnover of the betting market. What is more, it would make it more expensive to gamble on Swedish than on foreign sport, and thus risk reducing consumer interest in such betting and, by extension, the sponsorship revenue Swedish elite sport receives from gambling companies. Such a system, which would be established through negotiations and agree- ments between sports organisations and gambling companies, would also involve a risk of high administrative costs for sports or- ganisations and for monitoring by the national gambling authority. Taken together, these factors argue against such a regulatory ar- rangement. A model that also covered gambling on sport in other countries would, under existing market conditions, mean that up to 90 per cent of payments would go to foreign sports leagues. In the view of the Inquiry, a national regulatory arrangement with such an effect would be neither appropriate nor defensible. It is also open to question why sport should have more of a right to financial compen- sation than other events that are the subject of betting. The Inquiry’s overall assessment is that it would not be appropriate to introduce either the funding model that has been considered for the horse sec- tor or special copyright-like protection for sport in order to com- pensate the sports movement for its events being used as an object of gambling. Measures to exclude unlicensed gambling The purpose of the new regulatory framework was to channel gam- bling in towards licensed gambling. With the Gambling Act, certain tools were indeed introduced to exclude unlicensed gambling companies from the Swedish market, including warning messages and payment blocking. As part of its remit, the Inquiry has been tasked with looking into and proposing measures, beyond those al- ready in place, to restrict or exclude illegal gambling, especially online. The Inquiry’s assessment is that it is crucial to both the effi- cacy and the legitimacy of the reform that effective instruments exist to exclude unlicensed operators from the Swedish gambling market. “Channelisation” – the share of gambling that takes places through licensed operators – on the Swedish gambling market that is open to competition has been estimated at between 87 and 89 per cent in 2019, with a declining trend over the year, and with considerable dif- between different forms of gambling. Although the effec- tiveness of existing tools provided by the regulatory framework has not yet been fully tested and cannot be evaluated, the Inquiry takes the view that the provisions of the Gambling Act should be supple- mented to include additional instruments to exclude illegal gam- bling. The Inquiry proposes that •a permit requirement should be introduced for the production, supply, installation or modification of gambling software for online betting and commercial online gambling, with a view to reducing the access of unlicensed gambling companies to games, •promotion of gambling without the requisite licence should be expressly prohibited, to give the Swedish Gambling Authority a clearer mandate to act, for example in the event of marketing of illegal gambling, and •the prohibition in the Gambling Act on broadcasting advertising for illegal gambling should be extended to include foreign-based media services providers and advertising of this kind carried by a provider of a video sharing platform before, during or after user- generated videos or television programmes. Measures to reduce the harmful effects of gambling The Inquiry has been tasked with analysing how the declining inter- est in gambling on legal token is affecting the supply and harmful effects of gambling on such , and how this trend is changing the basic conditions and arrangements for the provision of gambling in this form. The Inquiry has also been tasked with con- sidering additional measures that could where necessary be taken to reduce the harmful effects of gambling, especially online casino games and gambling on token , and with making proposals to further restrict the marketing of gambling. Risk classification of gambling All gambling for money is associated with a risk of developing gam- bling problems. However, research and other studies show that some forms of gambling carry a greater risk in this respect than oth- ers. Certain forms of risk classification are already provided for in various ways in the Gambling Act – above all under the duty of care laid down in the Act, which can be said to presuppose some form of risk classification of players – and in the provisions on money laun- dering. The Inquiry’s assessment is that a model needs to be devel- oped to classify the risks of developing gambling problems associ- ated with different forms of gambling, based on an analysis of the structure and characteristics of the games in question. This system of risk classification should be designed, on the one hand, to make the risk levels of different forms of gambling more transparent to gambling market operators and consumers and, on the other, to pro- vide a basis for the development, for example, of regulations on measures to promote responsible gambling or of any future legisla- tion. The Inquiry therefore proposes that the Swedish Gambling Authority should be given the task of developing a model for the risk classification of different forms of gambling, in consultation with the . Further restrictions on marketing Moderation in the marketing of gambling has been a statutory re- quirement since 1 January 2017. When the Gambling Act was passed, the Government chose to carry over the moderation require- ment of the Lotteries Act unchanged into the new Act and high- lighted the need for the meaning of the concept to be developed through case law. To date, what is meant by moderation in market- ing has only been considered in two cases before the courts. The In- quiry has deliberated on whether there is now cause to introduce a requirement of special moderation in the marketing of gambling. However, in view of the way the existing moderation requirement was described in the government bill and has been interpreted by the courts and the , the Inquiry considers it too early at present to conclude that that requirement is not sufficient to protect vulnerable groups when it comes to the content of gambling advertising. The current provisions of the Gambling Act do not limit the amount of advertising for gambling. Despite a decline in spending on such advertising in traditional media since regulation of the gam- bling market was reformed, levels of spending remain high. Of the gambling advertising carried by traditional media in 2019, more than half (53 per cent) consisted of advertising for online casinos. This means that over billion was spent on advertisements for on- line casinos, a form of gambling only engaged in on a regular basis by around 0.5 per cent of ’s population. Research shows that gambling advertising has an adverse effect on problem gamblers and those at risk of becoming problem gamblers, and that extensive ex- posure of children and young people to such advertising may con- tribute to a normalisation of gambling. Research also shows that gambling on token , land-based casino games (i.e. Casino Cosmopol) and commercial online gambling (mainly online casi- nos) are the forms of gambling that can currently be considered to carry the greatest risk in terms of addiction. With a view to limiting the amount of advertising for the games involving the highest risk, the Inquiry proposes that advertising for such games via television broadcasts, on-demand television, searchable teletext, audio radio broadcasts, on-demand radio (podcasts) and video sharing platforms should be prohibited between 6 a.m. and 9 p.m. The Inquiry proposes that, as a penalty for infringements of this new provision, and of the ban on direct marketing aimed at self-ex- cluded players under Chapter 15, Section 2 of the Gambling Act, it should be possible to impose a market disruption charge as provided for in the Marketing Act. Through , the state has an exclusive right to provide gambling on token in restaurants and bingo halls. Despite a sharp fall in turnover for this form of gambling as online gambling has grown, the Inquiry’s assessment is that the provision of token gambling by the state continues to serve a function in chan- nelling gambling towards legal alternatives and therefore remains relevant from a player protection point of view. Consumer protec- tion relating to gambling on token has been strengthened in recent years, inter alia by more stringent regulation, new technical possibilities and a redoubling of responsible gambling efforts on the part of the company. Under temporary provisions introduced by the Government in response to the spread of Covid-19, the loss limit for gambling on token may be set no higher than 000 per week. The Inquiry proposes that this restriction should be made permanent and that, after a certain interval, the Government should review and evaluate the effects of the loss limit as a basis for deciding whether it should be lowered. Other measures to reduce the harmful effects of gambling Since the new regulatory framework was introduced, the Swedish Gambling Authority and the have exer- cised oversight of compliance with the Gambling Act. Several cases are still being considered by the courts. The Gambling Act is a framework Act, and under it the Gambling Authority therefore has extensive powers to introduce more detailed regulations and issue guidance, powers it has not yet made full use of. Regarding the duty of care (Chapter 14, Section 1 of the Gambling Act), the Gambling Authority has begun a process aimed at making clear its own assess- ment and providing support and guidance to licence holders con- cerning the requirements arising out of this duty. The Inquiry takes the view that the duty of care is one of the most important provi- sions of the Gambling Act as far as reducing the harmful effects of gambling is concerned. At the same time, it is probably one of the provisions of the Act whose application poses the greatest chal- lenges. The Inquiry’s assessment is that it is now very important for the Gambling Authority to create greater clarity about what licence holders are required to do to meet their duty of care. Other measures that could strengthen the new regulatory framework The Inquiry’s terms of reference state that, partly in the light of what emerges from the review by the for Public Manage- ment of the new regulatory framework for the gambling market, a need may arise to make changes to that framework. The Inquiry has therefore been given the possibility of considering and proposing other measures that may be necessary to strengthen implementation of the new framework. Greater ability to monitor developments on the gambling market At present, shortcomings exist in terms of what information is avail- able about the gambling market. The Inquiry’s assessment is that the current regulatory framework does not provide a sufficient basis for the Gambling Authority, and by extension for other relevant au- thorities and stakeholders and for the Government and the Riksdag, to effectively monitor developments on the market. The Inquiry therefore proposes the introduction of a new law laying down a re- porting requirement regarding developments on the gambling market, giving the Gambling Authority the power to order a licence or permit holder to provide information concerning the scale of gambling. Greater flexibility in technical requirements The Gambling Act covers a range of different providers, from smaller-scale physical lotteries and bingo providers to providers of casino games or betting, whose activities entail different risks from the standpoint of consumer protection and safety. The Inquiry’s as- sessment is that the regulatory framework does not provide a suffi- cient basis for the Gambling Authority to adapt the technical provi- sions and assessment procedures surrounding them to the differing conditions on which different providers operate. The Inquiry there- fore proposes clearer powers for the Gambling Authority in this re- gard. Validity of licences during the processing of renewal applications It is the responsibility of the licence holder to submit an application to renew an existing licence in good time before it expires, and to provide evidence in their application that the conditions for issuing a new licence are met. In cases where, owing to a heavy workload, the Gambling Authority’s processing times mean that a decision on renewal of a licence is not taken before the existing licence has ex- pired, however, the matter is beyond the licence holder’s control. As is the case under legislation in certain other sectors, therefore, the Inquiry proposes that, on certain conditions, an expired licence should remain valid during the time the Gambling Authority is con- sidering a renewal application. Adjustment of the rules on bonuses Under the Gambling Act, a bonus may only be offered or provided on the first occasion a player participates in any of the licence holder’s games.