ORDERS:
PUBLIC HEARING REPORT OF THE ADMINISTRATIVE LAW JUDGE
Pursuant to S. C. Code Ann. §§ 1-23-110 and 1-23-111 (Supp. 1996), a public hearing was
held on May 6, 1997 at the Administrative Law Judge Division to determine the "need and
reasonableness" of the proposed amendment to S.C. Code Regs. 117-190 (Supp. 1996). The
proposed amendment is intended to redefine the term "single place or premises." The South
Carolina Department of Revenue ("Department") and interested persons presented testimony and
written materials relating to the proposed regulation, all of which were incorporated into the record
of the hearing.
The following Proponents of the proposed regulation participated in the public hearing:
Nicholas P. Sipe, Esquire, representing the South Carolina Department of Revenue
Dr. L. Wayne Bryan, representing the South Carolina Christian Action Council
Mrs. Liz Gilland, representing the Horry County Council
Mr. Randolph G. Flowe, representing the South Carolina Coin Operators Association
The following Opponents of the proposed regulation participated in the public hearing:
James B. Richardson, Jr., Esquire, representing Mickey H. Stacks
Dr. Randolph C. Martin, representing South Carolina Video Mall Association
Kenneth E. Allen, Esquire, representing Carolina Entertainment Association
David E. Belding, Esquire, representing Hot Rods
Robert E. Kneece, Esquire, representing Munn Associates
John C. West, Jr., Esquire, representing Monte Carlo, Inc.
Robert P. Lusk, Esquire, representing North of the Border
FINDINGS
Based upon the statements, testimony, exhibits, written comments, and applicable law, I find
and conclude the following:
General Findings
1. S.C. Code Ann. § 1-23-111(B) (Supp. 1996), sets forth that this Court must make findings
as to the need and reasonableness of the proposed regulation and "may include suggested
modifications to the proposed regulations in the case of a finding of lack of need or reasonableness."
2. The Notice of Drafting of the proposed regulation was published in the State Register on
January 24, 1997.
3. The Department filed an Agency Transmittal Form with the Administrative Law Judge
Division on March 7, 1997 requesting a public hearing on the proposed regulation.
4. The Notice of Proposed Regulation was published in the State Register on March 28, 1997
which included a synopsis of the proposed regulation and the Notice of Opportunity for Public
Comment and Hearing.
5. The Department complied with all notice and procedural requirements of the APA and the
Administrative Law Judge Division Rules of Procedure.
6. A public hearing to allow the Department's presentation and public comment was conducted
on May 6, 1997 pursuant to S.C. Code Ann. § 1-23-111 at which time this Court received oral
testimony, exhibits, and written comments from the Department and interested persons.
Definition of "Single Place or Premises"
7. The Department seeks to amend Regulation 117-190 in order to redefine the term "single
place or premises" as set forth in S.C. Code Ann. § 2804(A)(Supp. 1996). That section provides:
No person shall apply for, receive, maintain, or permit to be used, and the
commission [Department] shall not allow to be maintained, permits or licenses for
the operation of more than eight machines authorized under S.C. Code Ann. § 12-21-2720 (A)(3) at a single place or premises. . . .
The Video Game Machines Act did not define the term "single place or premises." However, the
Honorable G. Ross Anderson held that the term "single place or premises" is "sufficiently definite
and susceptible of a common and ordinary meaning to provide a person of ordinary intelligence a
reasonable notice of the prescribed conduct." Reyelt, et al. v. South Carolina Tax Commission, CA
No. 6: 93-1491-3 (D.S.C. July 5, 1994). Afterwards, the Department issued S.C. Revenue Procedure
#94-2 that advised video poker operators of twelve factors considered by the Department in
determining whether a business is a "single place or premises." Subsequent to issuing Revenue
Procedure #94-2, the Department then issued Information Letter #94-13, amending the Revenue
Procedure. In that Letter, the Department adopted an Attorney General's opinion issued March 24,
1994 that explained that "subdividing a single building or structure with partitions to create so-called
discrete 'premises' is contrary to the legislative scheme." Thereafter, the General Assembly
promulgated Regulation 117-190 which became effective June 23, 1995. Regulation 117-190
currently defines "single place or premises" for purposes of interpreting the Video Game Machines
Act, as follows:
The Video Game Machines Act, found in Article 20, Chapter 21 of Title 12,
limits the number of machines that may be located in a "single place" or "premises."
A single place or premises must be a fixed location. It does not include
moving property such as a boat or a train, unless such property is permanently affixed
to a specific location.
A "single place" or "premises" means a structure surrounded by exterior walls
or firewalls consistent with the requirements of the applicable building code (or
where no building code is applicable, a one hour rated firewall), provided such
exterior walls and firewalls may not have any windows, doors or other openings
leading to another area where video game machines are located.
If a structure surrounded by exterior walls has two or more areas where video
game machines are located, each surrounded by exterior walls or firewalls as defined
and required above, the Department must review all the facts and circumstances to
determine if each area in reality constitutes a single place or premise for video game
machines. In determining whether each entity is in fact a single place or premises,
the Department of Revenue will consider the following factors: (1) Does each entity
have at least one separate electric utility meter? (2) Does each entity or business
have at least one separate employee on the premises during business hours? (3)
Does each entity or business have a separate local business license where required?
(4) Does each entity or business have a separate state sales tax license? A positive
answer to these four questions is required for each area to be considered a "single
place or premise" for purposes of The Video Game Machines Act.
The proposed amended Regulation would include the above language, with the following
additional provisions relating to "single place or premises":
Each single place or premises shall have at least one door opening to the exterior of
the structure in which it is located. No single place or premises may at any time have
a door, window, or any entry way open to another place or premises or to a common
interior area adjoining any other place or premises, except for bona fide fire and
emergency exits. Such fire and emergency exits are not to be opened except in fire
and emergency situations.
* * *
This regulation shall be construed and applied in such a way as to prohibit casino-style operations at locations in which video games are licensed.
The Department submitted in the State Register that the purpose of the proposed amendment
to Regulation 117-190 is to insure that "no more than five video game machines are operating in a
single place or premises." These changes would accomplish that purpose by making "commons
areas" unlawful thereby eliminating "video malls." The Department's proposed amendment "would
also limit retailers, such as convenience stores and bars, to five machines since it would prohibit a
door or entry way to the single place or premises from a common interior area." The Department
contends that these businesses violate the intent of the Video Game Machines Act against having
more than five machines in a "single place or premises."
However, following the promulgation of the existing Regulation 117-190, the Department
adopted Revenue Ruling #95-7, which sets forth in detail how to construct an approved video mall
or a "mall type setting"-- buildings with a single point of ingress/egress to a centrally located
common area shared by two or more video game rooms. Additionally, the Department expressly
approved the blueprint designs of numerous "video malls" before the structures were constructed.
Many video gaming businesses either modified their existing businesses to meet these guidelines or
constructed video mall structures in keeping with the Department's approved guidelines. The
Department's proposed amendment to Regulation 117-190 would eliminate these "video malls."
In this case, the redefining of "single place or premises" is not based upon the Department's
need to define an uncertain term in the statute. Obviously, the term has already been defined by the
existing Regulation. The Department asserted at the public hearing that the definition of "single
place or premises" as it currently exists in Regulation 117-190 has failed because it has allowed the
"large scale gambling operations that the General Assembly attempted to prohibit [in the Video
Gaming Act to] become an economic force in this State." Furthermore, the Department contends that
the existing definition has spawned numerous violations. The Department asserts it is expending a
great deal of its resources litigating these infractions. The Department believes that by eliminating
"video malls" and retailers with more than five machines, the number of violations--and the
subsequent litigation--will be significantly reduced.
The opponents of the proposed regulation assert that the amendment is unreasonable
because:
a. The grant of rulemaking authority to the Department in S.C. Code Ann. § 12-21-2798 (Supp. 1996) was so broad that it constitutes an impermissible delegation
of authority to the Department.
b. The Department should be estopped from the submission of this regulation
because the video poker industry has detrimentally relied upon the existing regulation
and the Department's express approval of "video malls."
c. Once the Department defined "single place or premises," that definition
became part of the statute; therefore, only the legislature can repeal the existing
regulation.
d. Redefining the definition of "single place or premises" is an unconstitutional
taking of their property.
8. I find that the previous findings of fact made in Department of Revenue v. Video Gaming
Consultants, Inc., Docket No. 96-ALJ-17-0088-CC are relevant for consideration in this report. See,
Freeman v. McBee, 280 S.C. 490, 313 S.E.2d 325 (Ct. App. 1984) ("A court can take judicial notice
of its own records, files, and proceedings for all proper purposes including facts established in its
records").
a. Dr. Valerie P. Loranz is Executive Director of the Compulsive Gambling
Center in Baltimore, Maryland. Dr. Loranz earned a Masters degree from Penn State
in Community Psychology. She wrote her dissertation on compulsive gambling. She
earned a Doctorate degree from the University of Pennsylvania. Again, her
dissertation topic was compulsive gambling. . . . Dr. Loranz was qualified as an
expert in the area of the diagnosis and treatment of pathological gambling, the impact
of gambling on society in general, and the relationship between gambling and crime.
b. Dr. William Norman Thompson is a professor of Public Administration at the
University of Nevada, Las Vegas. Over the past ten years, Dr. Thompson has been
a consultant for a panoply of gambling organizations. He has written approximately
100 articles on gambling and four published books. Dr. Thompson was qualified as
an expert in the general area of gambling and specifically in the area of the economic
impact of gambling upon society.
* * *
c. Based on the testimony of Drs. Loranz and Thompson . . . , I find the
following attributes exist concerning gambling in society. Pathological gambling,
the clinical term used to describe compulsive gamblers, is a very disruptive illness
that occurs in some individuals who choose to gamble. The increase of the
legalization of various forms of gambling increases the occurrence of pathological
gambling in society. Various direct and indirect economic and social costs
accompany pathological gambling, including crime, loss of productivity, broken
homes, bankruptcy, etc. In fact, pathological gambling affects the entire society, in
the work environment and the family environment. Specifically, there is a strong
relationship between compulsive gambling and crime. Money is the substance of the
pathological gambling addiction. Once the compulsive gambler exhausts all legal
access to money, he routinely commits crimes to get money. Thus the greater the
prevalence of gambling, the greater the prevalence of crime. Consequently, the
reduction of gambling reduces the potential for pathological gambling, and the
resulting amount of social harm.
Advertising Restriction
9. The Department also seeks to amend Regulation 117.190 to add the following provision:
In order to ensure that no casino or casino-style operations are allowed to operate, no
single place or premises may be made to appear from its exterior, by means of
signage or otherwise, to be a joint operation with any other single place or premises
which is adjacent to or within 50 feet of another single place or premises.
The Department set forth in the State Register that the purpose of this proposed amendment
is also to insure that "no more than five video game machines are operating in a single place or
premises." This amendment would accomplish that purpose by eliminating the video game machine
businesses known as the "strip shopping center concept" in which many "single places or premises"
are placed side-by-side in a shopping center-type structure, with each video game room having a
single sign advertising the location. However, though this amendment appears only to restrict the
advertising of video game machine businesses in strip shopping centers, the Department's witness
testified that the amendment prohibits any "single place or premises" from being located within fifty
feet of another "single place or premises." The Department contends that these businesses violate
the intent of the Video Game Machines Act against having more than five machines in a "single
place or premises."
The opponents to the proposed regulation assert that the regulation is unreasonable because:
a. The Department has no authority to regulate signs.
b. The Proposed regulation is too vague.
c. The Proposed regulation is an impermissible restriction upon
commercial speech.
d. The Department's interpretation of the application of the proposed
regulation is not supported by the language of the regulation.
Economic Impact
10. The Department proposes that the amendment to Regulation 117-190 eliminating "video
malls" will not have a substantial economic impact upon the State because the number of Class III
video poker machines as a result of its implementation will not be reduced, but will simply be
relocated. In other words, there will be an equivalent number of new, freestanding game rooms
opened to accommodate the machines reduced as a result of the elimination of "video malls."(1)
Furthermore, the employees who lose jobs as a result of this amendment will find employment in
other sectors of the "State's economy." The Department did not present an expert witness to support
its assertion. However, the Department contends that the fact that the number of video game
machines remained fairly constant, even during the period that twelve counties voted not to have
video game machines in their jurisdictions, proves there would be no significant change as a result
of the proposed regulation.
Dr. Randolph Martin(2) testified in opposition to the proposed regulation. Both Dr. Martin and
the Department's witness agreed that many of the "video malls" are located on the border of this
State or adjacent to major highways; many of the dollars received by the video poker industry come
from out-of- state tourists; and the "video mall" locations are more attractive to tourists. Dr. Martin
also testified that the video malls are located in high demand areas and in fact increase the demand
for gambling. Additionally, since many of the "video malls" are located in high unemployment areas,
most of the workers who lose their jobs as a result of the proposed regulation would have difficulty
finding employment. Finally, Dr. Martin found that because of the difficulty in maintaining a
profitable revenue stream with locations that house only five machines, there will not be an
equivalent number of new freestanding game rooms open to accommodate the machines reduced as
a result of the elimination of "video malls."
Dr. Martin concluded that for the above reasons there could be a significant economic impact
as a result of the proposed regulation. He states this impact would be in both the loss of jobs and the
decrease in revenue accruing to the State. To the contrary, the jobs in the video poker industry are
low wage jobs. Additionally, the money spent in these video malls by South Carolinians would
presumably be available to spend on other aspects of the State's economy.
The fact that the number of machines did not significantly decline after twelve counties
prohibited video poker can be explained by other factors. It is conceivable that the number of
machines may have risen significantly if the twelve counties had not prohibited video poker. The
Department simply offered no expert testimony to explain the potential variables concerning the
production of these statistics. Moreover, there are approximately 500 "video malls" in this State that
house the majority of the 28,000 video machine licenses. Even if the number of video poker
machines did not decline significantly after the machines were prohibited in twelve counties, that
evidence does not sufficiently establish, without further study, that the elimination of "video malls,"
the structures that house over half of the video game machines in this State, will not have a
substantial economic impact. For example, if one fourth (or 3,500) of the approximately 14,000
machines located in "video malls" are not relicensed as a result of the proposed regulation, it would
reduce State revenues by $7 million annually from the loss of license fees alone. Therefore, I find
that the proposed regulation potentially poses a substantial impact upon the State's economy.
CONCLUSIONS
General Conclusions
1. An administrative regulation is valid so long as it is reasonably related to the purpose of the
enabling legislation. Hunter & Walden Co. v. S.C. State Licensing Bd. for Contractors, 272 S.C.
211, 251 S.E.2d 186 (1978). To the contrary, "[a]lthough a regulation has the force of law, it must
fall when it alters or adds to a statute." Society of Professional Journalists v. Sexton, 283 S.C. 563,
324 S.E.2d 313 (1984).
Reasonableness
2. The Opponents of the proposed regulation contend that the broad grant of authority in S.C.
Code Ann. § 12-21-2798 to the Department to promulgate rules and regulations is an unlawful
delegation of authority. In Banks v. Batesburg Hauling Co., 202 S.C. 273, 24 S.E.2d 496, 498
(1943)(quoting 16 C.J.S., Constitutional Law, § 138 p. 352) the Court held that:
While the Legislature may not delegate its power to make laws, it may vest in
administrative officers and bodies a large measure of discretionary authority,
especially to make rules and regulations relating to the enforcement of the law.
To that end, when the General Assembly enacted the Highway Advertising Control Act, S.C. Code
Ann. § 57-25-110 et seq. (Law. Co-op. 1976), it included a provision authorizing the promulgation
of regulations related to outdoor signs. That provision provided that, "[t]he Highways and Public
Transportation Commission shall promulgate regulations governing the issuance of permits which
must include mandatory maintenance to ensure that all signs are always in a good state of repair."
S.C. Code Ann. § 57-25-150(D) (Law. Co-op. 1976). Pursuant to that statutory authorization the
Highway Commission, later the Highway Department, promulgated a regulation related to outdoor
advertising that was challenged in Young v. South Carolina Dept. of Highways and Public Transp.,
287 S.C. 108, 336 S.E.2d 879 (Ct. App. 1985). The Court upheld the Highway Department's
regulation which defined the term"transient or temporary," holding that:
While the General Assembly did not define "transient or temporary" by statute, it has
implicitly authorized the Department to interpret, clarify and explain the statute by
authorizing the Department to promulgate regulations governing outdoor sign
permits. Administrative agencies may be authorized " 'to fill up the details' by
prescribing rules and regulations for the complete operation and enforcement of the
law within its expressed general purpose." Heyward v. South Carolina Tax
Commission, 240 S.C. 347, 355, 126 S.E.2d 15, 19-20 (1962); 73 C.J.S. Public
Administrative Law and Procedure Section 67 (1983) (in the first instance, defining
a particular statutory term is an administrative function). We hold the Department's
definition is not overly restrictive and further the definition provides specific time
limitations which will assure that the statute will be applied in a consistent manner.
See Boucher Outdoor Advertising Co. v. Minnesota Department of Transportation,
347 N.W. 2d 88, 91 (Minn. App.1984).
In this case, the General Assembly did not define the term "single place or premises."
However, S.C. Code Ann. § 12-21-2798 (Supp. 1996) provides that "[t]he commission shall
promulgate rules and regulations pertaining to the machines and persons licensed by it." I find that
the above provision is not an unlawful delegation of authority. Therefore, the Department is properly
authorized to promulgate a regulation defining the phrase "single place or premises."
3. The Opponents of the proposed regulation alleged that the proposed amendment would
constitute a "taking" of the video mall owners' property. "The police power of the State rests upon
the fundamental premise that every citizen must use his property so as not to wrong or injure others."
Carter v. South Carolina Coastal Council, 281 S.C. 201, 314 S.E.2d 327, 329 (1984). To establish
a regulatory taking by the State, the property owner must prove two elements: (1) "that the
regulation has in substance 'taken' his property;" and (2) "that any proffered compensation was not
'just.'" Moore v. Sumter County Council, 300 S.C. 270, 387 S.E.2d 455, 456-457 ( 1990). In Lucas
v. South Carolina Coastal Council, 309 S.C. 424, 424 S.E.2d 484 (1992) the Court held that a
compensable taking occurs only when the property is deprived of "all economically beneficial use."
Here, the regulation will prohibit the properties from being used as "video malls," but does not
deprive the properties of all possible economic use. The properties would be deprived of only one
"economically beneficial use" and could be used for a wide variety of other commercial enterprises.
4. The Opponents contend that the State should be estopped from redefining a "single place or
premises." They argue that the video poker industry has spent large sums of money constructing
"video malls" not only in reliance upon the existing Regulation, but also in reliance upon the
Department's actions in specifically approving the construction and operation of "video malls."
"Regulations and restrictions upon the manner in which a property owner may use his property when
necessary for the general welfare are properly a part of the police power of legislative bodies and,
if reasonable, are valid in so far as they tend to prevent harm to the public and to promote the
common good." Richards v. City of Columbia, 227 S.C. 538, 88 S.E.2d 683, 687 ( 1955). The Court
further recognized in Richards that the State, in exercising its police power, "may require reasonable
changes in buildings previously erected, in order to comply with new requirements and standards for
the protection of health and safety, despite the fact that such buildings, at the time of erection,
complied with the regulations then in effect." Richards, 88 S.E.2d 683 at 689. Furthermore, the
Department redefining the term "single place or premises" also conforms with the U.S. Supreme
Court's decision in Helvering v. Wilshire Oil Co., 308 U.S. 90 (1939). In Helvering, the Court
refused to overturn an internal revenue regulation that changed the availability of certain deductions,
even though the Respondent detrimentally relied on the prior regulation that allowed the deduction.
State agencies are given broad power to define and interpret statutes, and in some cases, a
definition is found wanting because of inconsistencies or ambiguities. It would be unnecessarily
restrictive to force state agencies to live with ambiguous regulations in perpetuity, which fly in the
face of the law's need to evolve and change with the times. Following the reasoning of the Courts'
decisions in Richards and Helvering, the General Assembly may change a regulation in a way that
will affect the rights of property owners, even if the owners were in compliance with an earlier
regulation. Such a change falls within the police powers of the state, and would not give rise to an
estoppel argument. Thus, even though the video mall owners constructed their buildings in
accordance with the earlier regulation, they ran the risk that the regulation might be amended at a
later time.
5. "Reasonable" is defined as "Fair, proper, just, moderate, suitable under the circumstances.
. . . Not immoderate or excessive, being synonymous with rational, honest, equitable, fair, suitable,
moderate, tolerable." Black's Law Dictionary, 1265 (6th ed. 1990). The word has been further
defined to mean "agreeable to reason under the facts and circumstances of the case before the Court."
Ellis v. Taylor, 311 S.C. 66, 427 S.E.2d 678 (Ct. App. 1992). The definitions are broad and leave
a wide discretion to the judge in interpreting the reasonableness of a proposed regulation.
As stated above, the proposed Regulation's provision redefining a "single place or premises"
is lawful. Furthermore, the proposed Regulation is a reasonable definition of a "single place or
premises." However, though the Department may lawfully change its regulatory definitions, the
proposed regulation does not provide for a phase-in period. Therefore, video mall owners would be
forced to comply with the new regulation immediately upon enactment. I find that an immediate
implementation of the provision in Regulation 117-190 eliminating the very "video malls" that the
Department has explicitly approved would be unreasonable unless the proposed regulation is
modified to allow for a phase-in period.
6. The Department's proposed amendment concerning the joint advertising video poker
locations transforms advertising violations under the Video Game Machines Act into "single place
or premises" violations, subject to the penalty provisions of § 12-21-2804(A), despite the fact that
§ 12-21-2804(B) and (F) already set forth the penalties for advertising violations. An attempt to
impose penalties through a regulation that differs from the express penalties set forth in the
controlling statute constitutes an impermissible material alteration of that statute. Society of
Professional Journalists v. Sexton, 283 S.C. 563, 324 S.E.2d 313 (1984). Therefore, the amended
provisions concerning the advertising of video poker should be properly codified under Regulation
117-190.2.
Moreover, the provision of the proposed regulation setting forth that "no single place or
premises may be made to appear from its exterior, by means of signage or otherwise, to be a joint
operation with any other single place or premises which is adjacent to or within 50 feet of another
single place or premises" (emphasis added) is unreasonable as drafted. The Department's witnesses
testified that the amendment will serve to prohibit any "single place or premises" from being located
within fifty feet of another "single place or premises." While this may be the intended purpose of
the amendment, that purpose is not apparent in the language of the amendment. Therefore, if the
Department seeks to prohibit video poker locations from being within fifty feet of another "single
place or premises," the regulation should be redrafted to provide a more explicit statement of the
purpose and reasons for that amendment.
Need
7. What do the citizens of South Carolina need, and specifically what does the Department
need, on behalf of the State of South Carolina? A simple answer to any question concerning video
poker is that the State does not need legalized gambling to function as a State. There is no
fundamental right to gamble protected by the Federal Constitution. Lewis v. United States, 348 U.S.
419 (1955). In fact, but for the authorization of gambling upon video poker machines by the General
Assembly, the payout for the winnings upon these machines would be illegal. S.C. Code Ann. §§
16-19-40 and 60 (1985 and Supp. 1996). Therefore, any restriction placed upon this very institution
by the State could be sanctioned as needed. However, though the State does not need video poker
in the traditional sense of the word "need," its authorization of the Video Gaming Act has indicated
a desire or intention for the State to have this institution.
If this State's authorization of video poker is founded in the need to raise revenue then the
regulation proposed by the Department may adversely impact the raising of that revenue. The idea
that the Video Game Machines Act was promulgated to raise revenue is founded in S.C. Code Ann.
§ 12-21-2720(A)(3) (Supp. 1996), which currently imposes a Four Thousand ($4,000.00) Dollar
license tax for each video machine every two years. The money from these license taxes constitutes
a significant amount of revenue for the State, especially when the amount of the tax is compared with
other video game and coin-operated machine license fees. In addition, S.C. Code Ann. § 12-21-2776(B) (Supp. 1996), requires that every machine must be equipped with metering devices that
monitor and report the cash flow for each machine. The statute also requires that owners or
operators must file quarterly reports with the Department that gives information on income, payouts,
gross profits, and the amount of profit split between owners and operators. These requirements
express a legislative intent to compel accurate reporting of income for purposes of taxation.
Therefore, one may conclude that the Video Game Machines Act fulfills a need, or at least a
secondary need, to raise revenue for the State. That purpose could be adversely affected by the
Department's proposed regulation.
To the contrary, if the intention of the Video Game Machines Act is to create a carefully
regulated gambling industry that seeks to thwart the development of large scale, casino-type
gambling in South Carolina, then this amended regulation is reasonable and needed to accomplish
that purpose. The legislative intent to control gambling in South Carolina is grounded in several key
provisions of the Video Game Machines Act. First, the General Assembly directed that only a
limited number of gambling machines could be situated at a "single place or premises." §
12-21-2804(A). Second, the Act also prohibited advertising of these gambling machines. §
12-21-2804(B). Finally, the General Assembly required that a business's gambling operations not
provide its principal source of revenue. §12-21-2804(A). While this last provision was held to be
unconstitutional in Reyelt, supra, it nevertheless evinces an intent on the part of the legislature to
discourage large scale gambling operations in the State. See, 1994 Op. S.C. Att'y Gen. No. 51. On
that basis, there is logical evidence suggesting that the Act's intent is to discourage and strictly
regulate casino-style gambling in South Carolina.
In the final analysis, the question of the need of this regulation must be answered by the
legislative determination as to why South Carolina needs video poker.
RECOMMENDATIONS
S.C. Code Ann. § 1-23-111(B) (Supp. 1996) calls for a written report by the presiding
administrative law judge that includes "findings as to the need and reasonableness of the proposed
regulation based on an analysis of the factors listed in Section 1-23-115(C) . . . , and other factors
as the presiding official identifies and may include suggested modifications to the proposed
regulation in the case of a finding of lack of need or reasonableness." In essence, the public hearing
serves to edify the agency as to potential problems with the regulation, in the hope that the agency
will seek to modify the regulation accordingly. To that end, S.C. Code Ann. § 1-23-111(C) (Supp.
1995), provides that if the presiding administrative law judge determines that the need for or
reasonableness of the proposed regulation has not been established, the agency must elect to:
(a) follow the suggested modifications of the administrative law
judge and submit the modified proposal for legislative approval;
(b) not modify the proposed regulation but submit the
proposed regulation as originally drafted for
legislative approval;
(c) withdraw the proposed regulation.
Based upon the above Findings and Conclusion, I recommend that the proposed regulation should
be modified by the Department prior to submission to the General Assembly as follows:
1. In order to comport with fundamental notions of fairness and equity, the regulation should
not take effect immediately, but should follow the example set by the legislature in enacting § 12-21-2804(A), which granted a one-year period for all businesses to merely reduce the number of
machines on the premises from eight to five. Therefore, the proposed regulation, which will
eliminate "video malls," should give the affected businesses three years to come into compliance
after its promulgation.
2. The regulation needs to provide a definition for "common area" that clarifies what kinds of
spaces are prohibited. A suggested definition is:
"Common area" includes any space, either fully or partially enclosed by
walls, that allows a person to move from one business to the next business
without having to leave the enclosed area or travel through publicly
accessible outdoor areas. Such structures shall include, but not be limited to:
hallways, corridors, courtyards - both open-air and enclosed, atriums, and
lobbies.
3. The regulation's restrictions on advertising should be recodified under Regulation
117-190.2 and redrafted. A suggested redraft is as follows:
In order to ensure that no casino or casino-style operations are allowed to
operate, a single place or premises may use exterior advertising only for the
promotion of the individual business and may not make representations to the
general public that the business is participating in joint operations with
adjacent or neighboring single places or premises.
The regulation should also provide a definition for "casino style operations" that would assist
enforcement agents in determining what types of operations are prohibited. A suggested
definition is:
"Casino style operations" are businesses linked by a common area, where
more than five patrons may simultaneously play machines regulated under the
Video Game Machines Act.
_______________________________
Ralph King Anderson, III
Administrative Law Judge
Columbia, South Carolina
July 8, 1997
1. This assertion creates a logical dilemma. If the purpose of this regulation is to reduce large scale gambling
in South Carolina, which the Department contends currently exists as a result of these "video malls," what purpose is
actually accomplished if the number of machines, and therefore the availability of gambling, is not reduced?
2. Dr. Martin was qualified as an expert witness in the area of economics. He has been on the faculty of the
School of Economics with the University of South Carolina for twenty seven (27) years and a full professor for sixteen
(16) years. He has further prepared numerous studies concerning the economic impact of proposed governmental
activity. |