Home > Gambling in Europe and Ireland: the evidence.

Walsh, Simone (2014) Gambling in Europe and Ireland: the evidence. Drugnet Ireland, Issue 51, Autumn 2014, pp. 16-17.

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The Addictions and Lifestyles in Contemporary Europe – Reframing Addictions Project (ALICE-RAP) is the first major Europe-wide project studying addictions as a whole and their influence on wealth, health and stealth. Their recent policy paper discusses the nature and extent of gambling in EU member states.1 In addition, a recently published discussion paper, ‘Gambling: an Irish perspective’, gives a detailed insight into gambling in Ireland.2 The following account is based on these two papers. 

Prevalence

The prevalence of gambling in both Ireland and Europe is mainly unknown. While some EU member states have included gambling in population surveys, many are missing critical data. An EU-wide standardised survey has yet to be established for gambling, meaning the opportunity to compare gambling data across Europe is lost.   Available data suggest that 40–80% of adults across Europe engage in gambling annually. In Ireland in 2012 an estimated 64% of adults played the National Lottery, and according to the Institute of Public Health, up to 1% of the Irish population have gambling problems. At the request of the Department of Justice and Equality, the National Advisory Committee on Drugs and Alcohol (NACDA) will include a series of epidemiological questions about personal gambling in the next general population prevalence survey on drugs.  This baseline data will enable the Irish government to measure the nature and extent of gambling in Ireland and to monitor the negative health effects in the future (personal communication Dr Jean Long, Health Research Board). 

Gambling market

Within the EU, the gambling market is rapidly expanding, and has an estimated annual revenue of €80.3 billion. Owing to the lack of regulation of the Irish gambling market, it is not possible to measure the financial impact of gambling on the Irish economy. The Irish National Lottery, the only reliable available data source, has reported annual sales of €12.8 billion since being established in 1987.  Gambling sites operated outside the EU may be accessed by EU residents, but are not controlled by EU or national regulation.  Moreover, interactive gamblers may access gambling sites in other EU member states where more lenient restrictions apply.  These on-line providers are well positioned to monitor on-line gambling habits and to contribute to public health initiatives protecting gamblers.                                                                                        

Co-morbid conditions and risk factors for gambling

Mental health disorders including depression and anxiety are closely linked with gambling. According to the Irish discussion paper, the British Gambling Prevalence Survey 2010 revealed that a common profile among the gambling population was young males who are cigarette smokers and have parents with a gambling problem.  An Australian study identified the risk factors for gambling as access to legalised gambling, being less than 25 years old, living in an urban area, being socially disadvantaged, separated or divorced, and unemployed. 

Gambling disorder

The proposed Irish Gambling Control Bill 2013 favours the definition of a gambling disorder used in the World Health Organization’s DSM-5 diagnostic tool: ‘Persistent and recurrent problematic gambling behaviour leading to clinically significant impairment or distress with the following symptoms (examples):

  • preoccupation with gambling,
  • increasing amounts of money needed to achieve the desired excitement,
  • unsuccessful efforts to control gambling,
  • repeated gambling after losses (‘chasing’), and
  • lying to conceal the extent of involvement with gambling.’ 

Treatment

In Ireland, treatment for gambling disorders is publicly funded, but places are limited, with the majority of clients seeking treatment in private hospitals and treatment centres. The literature review reported in the Irish discussion paper shows that pharmacological treatments for gambling are mainly ineffective, although they may provide benefit if used to treat co-morbid mental health disorders.  Non-pharmacological therapies such as cognitive behavioural therapy, family therapy, psychodynamic psychotherapy, social skills retraining, problem-solving and relapse prevention have been successfully used in the management of gambling disorders. 

Proposed changes to Irish gambling legislation

Regulation of gambling in Ireland is governed by the Betting Act 1931 and Gambling and Lotteries Act 1956.

Under current legislation the maximum stake allowed in a licensed amusement hall or funfair is 6d. a player and the maximum prize is ten shillings, rendering this law unenforceable. In 2010 the Department of Justice and Law Reform published Options for regulating gambling.  This document discussed the need for change to the existing laws and potential dangers of gambling, but also recognised the financial benefits of a well-regulated gambling industry.  

The following measures are proposed for inclusion in the forthcoming Gambling Control Bill 2013:

  • The number of casinos in Ireland will be limited to 40, with a maximum capacity of 15 tables. This will rule out ‘super casinos’.
  • The new Bill will treat bingo and lotteries separately.
  • A complete ban on fixed-odds betting terminals, commonly seen in betting shops in the form of roulette, bingo and simulated horse-racing. These mechanical devices allow a person to bet a minimum amount with fixed odds of winning and there is always a ceiling on the amount the person can win.
  • The National Lottery will continue to be regulated under Section 42 of the National Lottery Act 2013.
  • Provision for sponsorship of events by the gambling industry.
  • Age restrictions for gambling and employment within the industry.
  • Establishment of the Office for Gambling Control – Ireland (OGCI). This office will be answerable to the Minister for Justice and Equality and will be supervised by a Socially Responsible Gambling Committee, which will include people from outside the gambling industry. The OGCI will be the regulating body for issuing licences and enforcing the legislation.

1. ALICE RAP Policy Paper Series, Policy Brief 2. Gambling – two sides of the same coin: recreational activity and public health problem. Available at http://www.alicerap.eu/

2. Subramanian N (2014) Gambling: an Irish perspective. Irish Journal of Psychological Medicine 31(3):153–158.  https://www.drugsandalcohol.ie/22142/https://www.drugsandalcohol.ie/22142/

Item Type
Article
Publication Type
Irish-related, International, Open Access, Article
Drug Type
Behavioural addiction
Intervention Type
Harm reduction
Issue Title
Issue 51, Autumn 2014
Date
October 2014
Page Range
pp. 16-17
Publisher
Health Research Board
Volume
Issue 51, Autumn 2014
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