Frances Black (Independent) | Oireachtas source

I move amendment No. 63:

In page 36, between lines 37 and 38, to insert the following: “(c) the costs imposed on all of society by problem and compulsive gambling;”.

Amendments Nos. 63, 64, 65, 66 and 67 seek to expand on the areas in which new regulatory authority may undertake, commission or collaborate on research. While the section is drafted in such a way that the authority would likely have some flexibility in deciding the areas it wishes to undertake research within, we feel that there is merit in the legislation being prescriptive on the undertaking of research in a number of important areas.

Amendment No. 63 provides that the authority would undertake research into the costs imposed on all of society by problem and compulsive gambling. We know that the prevalent and negative consequence of gambling is financial harm, but problem gambling has many other negative consequences, including poor health and well-being outcomes, the breakdown of social and family relationships with the imposition of psychological and psycho-social harms. It is important we come to a better informed understanding of the wider harm caused by gambling and gambling addiction so that we can better support those affected. The regulatory authority should play a central role in shaping this.

Amendment No. 64 provides that the authority undertake research into illegal or unregulated gambling, including gambling by children. While the majority of gambling takes place in regulated environments, we do not know if black market gambling takes place behind closed doors. Again, it is importnat that the regulatory authority engages in research so that this issue can be better addressed. An investigation published by Noteworthy earlier this summer, for example, exposed a significant network of illegal cockfighting in Ireland. People were gambling significant sums of money on a blood sport, with matches taking place in private homes, gardens and premises. A separate Noteworthy investigation in 2019 suggested that upwards of 30,000 unlicenced or improperly licenced slot gaming machines were in operation in Ireland at the time in operation, taking advantage of the more easily attained amusement machine permits. The same investigation highlighted the significant number of casinos doing business as private members clubs, skirting existing regulations. Senator McDowell recently spoke at great length about this particular issue in yesterday evening's debate.

Regarding illegal gambling by children, a 2023 study by the Institute of Public Health identified that roughly 23% of 16-year olds had gambled for money in the past year, of which 28.2% were boys and 17.9% were girls. In a separate 2024 ESRI study, two-thirds of problem gamblers reported having gambled before the age of 18, with the study demonstrating strong links between childhood experiences of gambling and problem gambling in adulthood. There are also certain anecdotal reports where our office has heard of children acting in schools as betting intermediaries. They take payment from their peers in school and place bets on their behalf to a parent or older sibling's online account.

This is seriously concerning given the ESRI's recent findings which advise that children who engage in some form of gambling are almost twice as likely to develop a gambling problem as someone who is never directly exposed. These are just a few examples of some of the illegal and unregulated gambling occurring in Ireland. We need to acknowledge that illegal and unregulated gambling occurs. We need to come to a better understanding of these forms of gambling so that we may adequately respond to the issue. It is absolutley imperative, therefore, that the regulatory authority explore this issue in its research. Amendment No. 65 seeks to expand on the provision that states the authority could undertake research into developments in information technology to ensure that the research would specifically take into account the role that emerging technologies can play in the development and sustainment of gambling addiction. While it is welcome that the authority will be in a position to undertake research into the technological developments within the gambling sector, it must do so with an eye to the potential dangers posed to gambling participants in their use. We have highlighted the extent to which gambling companies nowadays invoke technology to encourage their customers to spend more time and money on their services. While it is one thing for research to be undertaken to better understand technology like this, it is another thing entirely for us to meaningfully explore the links between this type of technology and gambling addiction.

Amendment No. 66, in a similar way to amendment No. 65, seeks to ensure that the regulatory authority would have an eye to the future in its research programme, exploring both prevailing and emerging trends in gambling activity in Ireland in its work. This could include undertaking research into gambling-like behaviour that mimics gambling in terms of both the level of risk and the potential for harm but that is not yet regulated for, perhaps investigating something like speculative cryptocurrency trading, which is a very strong conceptual overlap of gambling. If the new authority understands both current and emerging trends, it will ensure they are better equipped to respond to the challenges posed by the ever-changing regulatory landscape.

Amendment No. 67 inserts a new provision that would allow the authority to undertake research into international policy approaches to excessive, compulsive and problem gambling. A separate provision in this section suggests that the authority could undertake research to explore international regulation, but there is no reference to how this international expertise could be used to address problem gambling specifically. Given the significant risk posed to those affected by problem gambling, we should use every opportunity to try to reduce harm wherever possible. It seems like a good idea to explore how these problems are being addressed in the international context in order that we can apply the learnings to our benefit in Ireland. The Minister of State may put it to us that the section, as drafted, leaves scope for the authority to undertake research in these areas, but we are of the view that it is important to set out the regulatory intent as it relates to its research programme. We hope he will consider expanding on the existing provisions through the acceptance of this suite of amendments.