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Massachusetts lawmakers have moved forward with a proposal that could introduce historical horse racing (HHR) machines at the state’s remaining racetrack properties, reigniting a long-running debate over gambling expansion and drawing strong opposition from casino operators and tribal gaming interests.
The Massachusetts House approved the measure on July 8 as part of a broader $561 million economic development package. The legislation now heads to the Senate, where supporters face a more challenging path. If the two chambers adopt different versions of the bill, negotiations would likely continue through a conference committee.
The proposal marks a significant development in a state that established its modern casino framework more than a decade ago. Opponents argue that authorizing HHR terminals would alter the balance that emerged from earlier gaming legislation, while supporters view the machines as a way to generate new investment and support racing-related properties.
Debate Centers on Classification of HHR Machines
At the heart of the dispute is the legal and regulatory status of historical horse racing machines.
The terminals closely resemble traditional slot machines, featuring spinning reels, themed displays and rapid wagering cycles. However, the underlying mechanics differ from conventional casino slots. Rather than relying on a random number generator, each wager is tied to the outcome of a horse race selected from a database of previously run events.
The races are anonymized, and participants place bets into pari-mutuel pools, meaning wagers are made against other bettors rather than directly against a casino operator. The visual slot-style presentation serves primarily as a way to reveal the result of the wager.
Supporters contend that these characteristics place HHR within the category of horse-racing wagering rather than casino gaming. Critics reject that interpretation, maintaining that the machines function similarly to slots from a player’s perspective and should therefore be regulated under the same framework as casino gambling.
The distinction has become increasingly important across the United States, where HHR has expanded rapidly in several jurisdictions. The format has grown into a major segment of the gaming market in states such as Kentucky and Virginia, often gaining approval through racing laws rather than casino legislation.
Suffolk Downs and Raynham Park Stand to Benefit
The proposal would permit HHR machines at qualifying racetrack properties, with the most immediate beneficiaries expected to be Suffolk Downs in East Boston and the former Raynham Park site in southeastern Massachusetts.
Although neither location currently conducts live horse racing, Suffolk Downs continues to offer simulcast wagering while much of the former racetrack property undergoes redevelopment as a mixed-use community.
Developer Richard Fields, who has spent years pursuing efforts to revive Suffolk Downs, supports the legislation. Fields has also reached an agreement to acquire Raynham Park should the measure become law.
According to a report commissioned by Fields and prepared by Spectrum Gaming Group, establishing HHR operations at the two locations would require approximately $225 million in combined capital investment.
Supporters in the House have presented the proposal as a tool for supporting racing-related properties and creating a new source of revenue. Proceeds generated by the machines would also contribute toward a state health fund that lawmakers have described as facing financial strain.
Casinos and Tribe Oppose Expansion
Massachusetts’ commercial gaming sector has mounted a coordinated campaign against the proposal.
Operators of Encore Boston Harbor, MGM Springfield and Plainridge Park have argued that the machines are effectively slot devices operating under a different label. They contend that casinos have invested heavily under a regulatory structure that imposed substantial licensing costs, tax obligations and oversight requirements.
The casino operators maintain that authorizing HHR terminals would create direct competition without applying the same standards that govern existing gaming facilities.
The Mashpee Wampanoag tribe, which operates a casino in Taunton, has also objected to the measure. Tribal leaders argue that the legislation would expand gaming outside the framework established by existing agreements and state law.
In a statement opposing the proposal, cited by Lower Buck Times, the tribe said: “This is not just a gaming issue. It is a matter of Tribal sovereignty, government-to-government respect, and the Commonwealth keeping its word.”
The disagreement highlights broader questions surrounding gambling policy in Massachusetts. Some observers have noted that the debate could also renew discussion about future gaming opportunities connected to Suffolk Downs.
The issue extends beyond Massachusetts as well. Across the country, lawmakers and regulators continue to revisit gambling structures that were created during earlier waves of expansion. Historical horse racing has become one of the clearest examples of how emerging gaming formats can challenge long-standing distinctions between racing and casino gambling.