WT/DS285/R 
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ANNEX D  
 
REQUEST FOR THE ESTABLISHMENT OF A PANEL 
BY ANTIGUA AND BARBUDA 
  
WORLD TRADE  
ORGANIZATION   
WT/DS285/2 
13 June 2003 
 (03-3174) 
 Original:   English 
   
UNITED STATES – MEASURES AFFECTING THE CROSS-BORDER SUPPLY 
OF GAMBLING AND BETTING SERVICES 
 
Request for the Establishment of a Panel by Antigua and Barbuda 
 
  The following communication, dated 12 June  2003, from the Permanent Delegation of 
Antigua and Barbuda to the Chairman of the Dis pute Settlement Body, is circulated pursuant to 
Article 6.2 of the DSU.  
_______________ 
  
 The Government of Antigua and Barbuda consid ers that certain measures of central, regional 
or local governments and authorities of the United States are inconsistent with the United States' 
commitments and obligations under the General Ag reement on Trade in Services (GATS) with 
respect to the cross-border supply of gambling and betting services.  
 The rules applying to the cross-border suppl y of gambling and betting services in the United 
States are complex and comprise a mixture of state a nd federal law.  The rele vant laws are listed in 
Sections I and II of the Annex attached to this reque st.  Although this is not always clear on the face 
of the text of these laws, relevant United States aut horities take the view that these laws (separately or 
in combination) have the effect of prohibiti ng all supply of gambling and betting services from 
outside the United States to consumers in the United States.  Section III of the Annex lists examples 
of measures by non-legislative authorities of the Un ited States applying these laws to the cross-border 
supply of gambling and betting services.  The measures listed in the Annex only come within the scope of this dispute to the extent that these me asures prevent or can prevent operators from Antigua 
and Barbuda from lawfully offering gambling and betting services in the United States under 
conditions of competition compatible with the United States' obligations. 
  The total prohibition of gambling and betting services offered from outside the United States 
appears to conflict with the United States' ob ligations under GATS and its Schedule of Specific 
Commitments annexed to the GATS (and in particul ar Sector 10.D thereof) for the following reasons: 
 
 (a) The central, regional or local authorities of the United States allow numerous 
operators of United States origin to offer all types of gambling and betting services in the United States (sometimes via exclusive rights or monopolistic structures).  There WT/DS285/R 
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appears to be no possibility for foreign opera tors, however, to obtain an authorization 
to supply gambling and betting services from outside the United States.  This appears to conflict with the United States' co mmitments and obligations under GATS, 
including Articles VI:1, VI:3, VIII:1, VIII:5, XVI:1, XVI:2, XVII:1, XVII:2 and XVII:3 and its Schedule of Specific Commitments. 
 
 (b) The United States authorities also restri ct international transfers and payments 
relating to gambling and betting services o ffered from outside the United States.  
Some of the non-legislative measures listed in Section III of the Annex are examples 
thereof:  the measures described in the doc uments released by the Florida Attorney 
General and the New York Attorney General.  These restrictions appear to violate 
Articles VI:1, XI:1, XVI:1, XVII:1, XVII:2 and XVII:3 of GATS and the United States' Schedule of Specific Commitments. 
  On 13 March 2003, the Government of Antigua and Barbuda requested consultations with the 
Government of the United States pursuant to Article  4 of the Understanding on Rules and Procedures 
Governing the Settlement of Disputes (DSU) a nd Article XXIII of the GATS regarding measures 
affecting the cross-border supply of gambling and betting services.  The United States, and Antigua and Barbuda held such consulta tions in Geneva on 30 April 2003 but these consultations did not 
resolve the dispute.  
 Accordingly, Antigua and Barbuda respectfully requests the Dispute Settlement Body to 
establish a panel pursuant to Article 6 of the DSU to  examine this matter with the standard terms of 
reference as set out in Article 7.1 of the DSU.     WT/DS285/R 
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ANNEX 
 
 
I. U NITED STATES FEDERAL LEGISLATION  
 
The measures taken by the United States Congr ess which infringe on the obligations of the 
United States under the GATS include, without limitation, the following:  15 U.S.C. §§ 3001 to 3007 18 U.S.C. § 2 
18 U.S.C. §§ 1081, 1084 
18 U.S.C. §§ 1301 to 1307 18 U.S.C. § 1952 18 U.S.C. § 1953 18 U.S.C. § 1955 
28 U.S.C. §§ 3701 to 3704 
39 U.S.C. § 3005  
II. S
TATE AND TERRITORIAL LEGISLATION  
 
The measures taken by the various States and Territories of the United States which infringe 
on the obligations of the United States under the GATS include, without limitation, the following: 
 
Alabama  
 
ALA. CODE §§ 13A-12-20 to 13A-12-31 (1977). 
 
Alaska  
 
ALASKA STAT. § 05.15.180 (1997). 
ALASKA STAT. §§ 11.66.200  to 11.66.280  (1978).   
 Arizona  
 
A
RIZ. REV. STAT. ANN. §§ 13-3301  to 13-3312  (2001). 
 
Arkansas  
 
ARK. STAT. ANN. §§ 5-66-101  to 5-66-119  (1987). 
 
California  
 
CAL. PENAL CODE §§ 319-337z  (West Supp. 2003).   
CAL. BUS. & PROF. CODE § 19800-19807  (West. Supp.  2003). 
 
Colorado   
 
COLO. CONST . art. XVIII,  § 2. 
COLO. REV. STAT. §§ 18-10-101  to 18-10-108  (1999). 
COLO. REV. STAT. §§ 12-47.1-101  to 12-47.1-106  (1996). 
 
Connecticut  
 C
ONN. GEN. STAT. §§ 53-278a to 53-278g (2001). WT/DS285/R 
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Delaware  
 
D
EL CONST . art. 2, §17. 
DEL. CODE ANN. tit. 11, §§  1401-32,  1470-73  (2002). 
 
District of Columbia  
 
D.C.  CODE ANN. §§ 22-1701  to 22-1712  (2001). 
 Florida  
 
F
LA. STAT. §§ 849.01  to 849.46  (2000). 
 
Georgia  
 
GA. CONST . art. 1, § 2. 
GA. CODE ANN. §§16-12-20 to 16-12-62 (2003). 
 
Hawaii 
 
HAW. REV. STAT. ANN. §§ 712-1220 to 712-1231 (Michie 1973).  
  
Idaho  
 
IDAHO CONST . art. III, § 20. 
IDAHO CODE §§ 18-3801  to 18-3810  (1992). 
 
Illinois  
 
ILL. REV. STAT. ch. 720,  §§ 5/28-1  to 5/28-9  (1993).   
 Indiana  
 
I
ND. CODE §§ 35-45-5-1  to 35-45-5-8  (1998). 
 
Iowa  
 
IOWA CODE §§ 725.5  to 725.16  (1993). 
 
Kansas  
 
KAN. CRIM. CODE ANN. § 21-4303  to 21-4308  (1995). 
 Kentucky  
 
K
Y. REV. STAT. ANN. §§ 528.010  to 528.120  (Baldwin’s  1974). 
 Louisiana  
 
L
A. CONST . art. XII,  § 6. 
LA. REV. STAT. ANN. § 14:90.-  .4 (West  1986). 
    WT/DS285/R 
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Maine 
 
M
E. REV. STAT. ANN., tit. 17, §§ 330-347 (1983). 
ME. REV. STAT. ANN., tit. 17, §§ 2305-2306 (1983). 
 Maryland 
 
M
D. CODE ANN., CRIM. LAW, §§12-101 to 12-307 (2002). 
 
Massachusetts 
 
MASS. GEN. LAWS ANN. ch. 271, §§ 1-50 (West 2000). 
 
Michigan 
 M
ICH. COMP. LAWS ANN. §§ 750.301-750.315a (West 1990). 
 
Minnesota 
 
MINN. STAT. ANN. §§ 609.75-609.763 (Supp. 2003). 
 Mississippi 
 
M
ISS. CODE ANN. §§ 97-33-1 to 97-33-203 (1999). 
 
Missouri 
 
MO. ANN. STAT. §§ 572.010-572.125 (West 1995). 
 
Montana 
 
MONT. CONST . art. III, §9. 
MONT. CODE ANN. §§ 23-5-101 to 23-5-810 (1993). 
 
Nebraska 
 
NEB. REV. STAT. §§ 28-1101 to 28-1117 (1995). 
 
Nevada  
 
NEV. REV. STAT. § 202.450  (1999). 
NEV. REV. STAT. § 463.160  (2001). 
 New Hampshire  
 
N.
 H. REV. STAT. ANN. § 647:2 (1999).   
 
New Jersey  
 
N.J.  CONST . art. IV, § 7. 
N. J. STAT. ANN. §§ 2A:40-1 to 2A:40-9 (2000). 
N. J. STAT. ANN. §§ 2C:37-1 to 2C:37-9 (1995). 
N. J. STAT. ANN. § 5:5-63 (1996). 
N. J. STAT. ANN. §§ 5:12-1 to 5:12-210 (1996). WT/DS285/R 
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New Mexico  
 
N.M.
 STAT. ANN. §§ 30-19-1 to 30-19-15 (1978). 
 New York 
 
N.Y.
 CONST .  art. I, §9. 
N.Y.  EXECUTIVE LAW §§ 430-439a (McKinney 1996).  
N.Y.  PENAL LAW §§ 225.00-225.40 (McKinney 1999).  
N.Y.  GENERAL OBLIGATION LAW §§ 5-401 to 5-423 (McKinney 2001).   
 
North Carolina  
 
N. C. GEN. STAT. §§ 14-289 to 14-309.4 (1994). 
 
North Dakota  
 
N.D.  CONST . art. 11, § 25. 
N.D. C ENT. CODE § 12.1-28-01 to 12.1-28-02 (1987). 
 Ohio  
 
O
HIO CONST . art. XV, § 6. 
OHIO REV. CODE ANN. §§ 2915.01-2915.06 (1996). 
 Oklahoma  
 
O
KLA. STAT. ANN. tit. 3A, § 205.6 (West 1993). 
OKLA. STAT. ANN. tit. 21, §§ 941-993 (West 2002). 
 
Oregon  
 
OR. REV. STAT. §§ 167.108-167.170 (2001). 
 
Pennsylvania 
 
PA. STAT. ANN. tit. 18, § 911 (Purdon 1998). 
PA. STAT. ANN. tit. 18, § 5513 (Purdon 2000). 
PA. STAT. ANN. tit. 66, § 2902 (Purdon 2000).  
 
Rhode Island  
 R.I. C
ONST . art. VI, § 22. 
R. I.  GEN. LAWS §§ 11-19-1 to 11-19-45 (1993). 
R. I.  GEN. LAWS § 11-51-1 to 11-51-2 (1979). 
 
South Carolina  
 
S.C.  CODE ANN. §§ 16-19-10 to 16-19-160 (Law Co-op. 1996). 
 
South Dakota  
 S.D.
 CODIFIED LAWS §§ 22-25-1 to 22-25-51 (Michie 1976).    WT/DS285/R 
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S.D.
 CODIFIED LAWS § 22-25A-1 to 22-25A-15 (Michie 2000).  
 
Tennessee  
 
TENN. CONST . art. XI, § V. 
TENN. CODE ANN. §§ 39-17-501 to 39-17-509 (1989). 
 
Texas  
 
TEX. PENAL CODE ANN. §§ 47.01 to 47.10 (West 2003). 
 
Utah  
 
UTAH CODE ANN. §§ 76-10-1101 to 76-10-1109 (1998). 
 Vermont  
 
V
T. STAT. ANN. tit. 13, §§ 2133-2156 (1957). 
 
Virginia  
 V
A. CODE ANN. §§ 18.2-325 to 18.2-340 (Michie 1992). 
 
Washington  
 
WASH. REV. CODE ANN. § 4.24.070 (West 1988). 
WASH. REV. CODE ANN. §§ 9.46.010 to 9.46.903 (West 1998). 
 
West Virginia  
 
W. VA. CODE §§ 61-10-1 to 61-10-5 (1970). 
 Wisconsin  
 
W
IS. CONST . art. IV, § 24. 
WIS. STAT. ANN. §§ 945.01-945.13 (West 2001).  
 
Wyoming  
 
WYO. STAT. §§ 6-7-101 to 6-7-104 (1996).  
 
Guam  
 9
 GUAM CODE ANN. §§ 64.10  to 64.22A  (2003). 
 
Puerto Rico  
 
P.R.  LAWS ANN. tit. 33, §§ 1241 to 1259 (1949). 
 
U.S. Virgin Islands  
 
V.I.  CODE ANN. tit. 14, §§ 1224-1226 (1985).  
V.I.  CODE ANN. tit. 32, §§ 602-646 (2001).  
 WT/DS285/R 
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III. O
THER UNITED STATES FEDERAL AND STATE ACTIONS OR MEASURES  
 
Other actions or measures taken by United Stat es Federal and State administrative agencies, 
officials and judiciary which infringe on the obligations of the United States under the GATS include, without limitation, the following: 
 
United States  
 
United States v. Cohen, 260 F.3d 68 (2
nd Cir. 2001), cert. denied , 122 S. Ct. 2587 (2002). 
 Florida 
 
Florida Attorney General, Press Release: Western Union Cuts Off Sports Betting Accounts  (December 
23, 1997). 
 
Kansas  
Op. Att’y Gen. No. 96-31 (March 25, 1996).  Kansas Attorney General, Internet Gambling Warning  (visited March 13, 2003) 
<www.accesskansas.org/ksag/contents /consumer/internetwarning.htm> 
 
Michigan 
 
Michigan Gaming Control Board, Frequently Asked Questions: Is it Legal to Gamble Over the 
Internet in Michigan  <www.michigan.gov/mgcb/0,1607, 7-120-7863-19182--F,00.html> 
 
Minnesota 
 
Minnesota Attorney General, Statement of Minnesota Attorney General on Internet Jurisdiction   
(visited March 13, 2003) <www.jm ls.edu/cyber/docs/minn-ag.html> 
 New York 
 
Vacco ex rel. People v. World Interactive Gaming Corp. , 714 N.Y.S.2d 844, 854 (N.Y. Sup. Ct. 
1999).   
New York Attorney General, Press Release: Ten Banks End Online Gambling With Credit Cards + 
Spitzer Hails Establishment of New Banking Industry Standard   (11 February 2003). 
 New York Attorney General, Press Release: Agreement Reached with Paypal to Bar New Yorkers 
from Online Gambling + Campaign Against Illegal  Gambling Web Site in New York Continues  (21 
August 2002). 
 
Attorney General of the State of New York, Internet Bureau,  In the matter of PayPal, Inc. , Assurance 
of Discontinuance (16 August 2002).  New York Attorney General, Press Release: Financial Giant Joins Fight Against Online Gambling + 
Leading Credit Card Issuer Agrees to Block Key Internet Transactions  (14 June 2002). 
 Attorney General of the State of New York, Internet Bureau,  In the matter of Citibank (South 
Dakota), N.A. , Assurance of Discontinuance (21 June 2002). 
 
_______________