HB 105 would allow racetracks to offer pari-mutuel wagering without live racing.

Posted by author February 22, 2025 Horse Racing

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Critics of HB 105 say that, if it passes during the legislative session that kicks off next month, it will cripple Marion County’s horse farms and horse breeding operations, eliminate jobs, and severely damage anything associated with the horse industry.

Those opposing the measure say Marion County, known as the Horse Capital of the World, will be a shadow of itself. They urge local leaders, legislators representing Marion County, horse fans, and anyone who is connected to or enjoys the area’s beautiful horse farms to unite and stand against the bill.

In a statement, the Gulfstream Park racetrack in south Florida says it believes “in working together on a sensible and sustainable long-term solution” for thoroughbred racing in Florida.

Repeated efforts to reach the bill’s sponsor, state Rep. Adam Anderson, R-Palm Harbor, were unsuccessful. WESH 2 News in Orlando reported that Anderson said he supports racing in Florida and that his bill “will help horse tracks make better business decisions to invest in their parks.”

What’s HB 105?

According to the Florida Senate website, the bill “authorizes thoroughbred permitholders to elect not to conduct live racing or games; specifies that such permitholders retain certain permits, eligibility, exemptions, & licenses; provides that certain permitholders are eligible to be guest track, revising specified requirements for thoroughbred permitholders who have certain licenses.”

In other words, it would give racetracks the ability to operate gambling devices without offering live horse racing. This affects Tampa Bay Downs and Gulfstream Park.

The Star-Banner has reached out to multiple people for their opinions on whether HB 105 is good or bad for Marion County. Here’s a look at their responses, edited for length and clarity.

David S. Romanik

According to his biography, David S. Romanik is a Florida attorney who has practiced pari-mutuel gaming law, specializing in areas relating to horse racing, for close to 50 years. He is a horse owner and breeder, and one of his horses won the Washington D.C. International Stakes, and another ran in the the Breeders’ Cup. A past president of Gulfstream Park, Romanik was the founder of Gretna Racing, LLC, a quarter horse track and gaming facility in Tallahassee.

Star-Banner: If the Florida Legislature passes HB 105, how would that affect horse owners and other stakeholders here locally, and would it affect breeding and sales locally?

Romanik: In 2021, the legislature amended the pari-mutuel code to allow all of the other pari-mutuel sports — including jai alai, harness racing and quarter horse racing — to decouple their live racing from their other gambling activities, which inside of Miami-Dade and Broward includes both poker and slot machines, and outside of those counties includes poker.

That law granted those permit holders a short period of time to amend their existing pari-mutuel licenses to eliminate any live racing or games for the then current licensing period.

The result of the passage of that law was that not one of the permit holders granted the right not to conduct live racing or games EVER conducted another live race or game.

Considering that there is no real Florida industry built around jai alai, and the industries around harness horse and quarter horse breeding were rather minimal, there wasn’t a big public sector hit caused by the decoupling of those sports.

During the same legislative session, the horsemen and FTBOA , who are both part of a large and economically significant thoroughbred racing and breeding industry in Florida, were insistent that thoroughbred permit holders not be allowed to decouple. And when Gulfstream agreed that it wanted to continue live racing, it wasn’t controversial at all to not make decoupling available to thoroughbred permit holders.

So now, Gulfstream has changed its position and is seeking the authorization to decouple, just like the other permit holders did in 2021. Since Gulfstream is now seeking the right to decouple, prior history indicates that Gulfstream will stop live racing as soon as it can.

If live thoroughbred racing ceases at Gulfstream, then there will be no more live thoroughbred racing in South Florida, which will then put a majority of the trainers out of business. It will also cause the owners to look to other states to race their horses — and if their horses are Florida-bred horses, the owners will lose the Florida-bred incentive payments they now receive for racing Florida-bred horses in Florida.

This question also ties into your second question, because if there isn’t a year-round racing program in Florida where Florida breds can race and win Florida-bred incentive programs — and since Florida breds cannot earn any incentive payments running at out of state tracks where non-state bred horses generally already run for a lower purses than state-bred horses — I can see a mass exodus of the remaining horse breeders we still have in Florida. Because with basically no place to race, then there will be no market for Florida-bred horses to be sold.

Maybe a third-generation farm like Ocala Stud may continue to breed Florida-bred horses, but I think most other Florida breeders would just stop breeding in Florida. Not a great prospect for Ocala.

Star-Banner: If Gulfstream closes because of decoupling, can Tampa Bay Downs absorb the loss of jobs and other effects associated with it?

Romanik: Gulfstream desires to stop racing because the land has become too valuable to continue racing horses on it. This problem has existed for at least 25 years that the Stronachs have controlled Gulfstream.

The same problem that is causing Gulfstream to now seek to decouple is also applicable to Tampa Bay Downs because its real estate has also increased so much in value that it is only a matter of time before Tampa Bay Downs also becomes like Gulfstream has become — simply another real estate play.

On top of that, I just don’t see Tampa Bay Downs ever joining the “major leagues,” so to speak. It’s a nice little track with limited stabling on site — its only advantage is that it is only two hours from Ocala.

However, I see Gulfstream trainers with dirt horses sending them to Oaklawn Park and their turf horses to the Fair Grounds instead of Tampa. Plus I’m not sure that the owner has any interest in hosting a high-powered race meet like Gulfstream.

At best, Tampa may be a stopgap for a few years, but not much longer after that.

My opinion, based upon my many years in this industry, is that the focus should now be on the future, with the ultimate goal being to make sure that a new thoroughbred track will be built in Florida in order to keep the Florida racing business — owning, training, breeding, selling, etc. — viable.

Bill White

Before becoming a Dunnellon City Council member and later mayor, Bill White was a horse trainer in south Florida for 32 years. White won more than 2,000 races, was leading trainer 17 times in south Florida, and was inducted into the Calder Hall of Fame, according to White’s resume. (Calder was a south Florida racetrack.)

White is a past president of Florida Horsemen Benevolent Association, or FHBPA, which represents Florida’s trainers and owners.

Star-Banner: Why do you think decoupling is bad for Florida, and especially for Marion County?

White: Currently, Gulfstream Park is the only year-round racetrack that operates continuously, 12 months a year. Tampa Bay Downs operates only during the winter and spring. Both tracks have either a card room (Tampa) or casino (Gulfstream) attached to them, which means they are coupled by a state racing license and gaming permit.

The casino and card room permits require live racing at the pari-mutuel facility as a prerequisite of gaming permit issuance by the state of Florida. Thus, to operate a casino or card room, the facility must have live racing, thus guaranteeing live racing.

Decoupling the gaming permit from the racing license removes the requirement to conduct live racing and creates stand-alone casinos/gaming. Stand-alone casinos or cardrooms was not the intent when gaming was legislated. The casinos/cardrooms were legislated to add revenue and support the pari-mutuel facility of which they were coupled.

In Florida, every pari-mutuel facility (harness, quarter horses, jai alai) that has decoupled has stopped live racing/performances and become expanded stand-alone gaming casinos/cardrooms.

Without live racing in Florida, the breeding and training centers that are principally in Marion County would have nowhere in Florida to race, which would be crippling to the breeding and training centers in Marion County.

The ongoing farms are a critical local economic component and have been a mainstay agricultural industry for decades. Marion County is one of the largest breeding areas of race horses in the world.

Decoupling, with the anticipated closure of Gulfstream Park, would crush the incentive to breed, train and raise racehorses in Marion County. This would cost thousands of jobs, impact related business, and force the selling/closure of the breeding farms within the Marion County area.

Marion County’s proximity to Gulfstream and Tampa Bay Downs, with its moderate year-round climate and open spaces, is ideal, and the reason the industry initially took root in Marion County.

Horse racing in Florida has been an ongoing enterprise for nearly 100 years. The breeding, training and racing of horses in Florida generates billions of dollars in jobs (and) taxes while creating auxiliary/supporting businesses. Ownership of Gulfstream Park has stated publicly that if decoupled it would only guarantee racing thru 2028.

Tampa Bay Downs has not made a statement what they may do if decoupled from the card room.

Star-Banner: In your estimation, how can local politicians convince elected leaders from other counties to vote no on HB 105?

White: Local elected officials need to know that HB 105, if passed, will have a significant tangible negative impact on the revenue and jobs in the Marion County area.

Officials at the county and city levels need to exert their influence and make it known to the area legislators of their concern.

It is paramount to understand that breeding and racing is a significant agricultural enterprise that protects open spaces, creates jobs, and incentivizes investment in the Marion County and surrounding economy.

Star-Banner: If HB 105 passes, what can Marion County officials do to soften the blow?

White: Other than promoting development, I cannot think of anything that Marion County officials could do to soften the economic blow of decoupling and its impact to area racehorse breeding farms. HB 105 needs to be opposed by Marion County officials.

Craig Curry

While county and city elected officials don’t have a vote, Craig Curry, a former Ocala mayor and present county commissioner, said: “Let me start by saying I am strongly opposed to HB 105 or decoupling thoroughbred horse racing from the pari-mutuel permit holders.”

He went on to make these points:

It will allow the permit holders to operate as stand-alone casinos.

It will have devastating effects on Marion County’s thoroughbred industry, racing, breeding and training.

Thousands of jobs in Marion County and across Florida will likely be lost.

It will certainly negatively affect the economic benefit Florida and Marion County currently enjoy from the thoroughbred industry.

“This is a very bad bill for not just Marion County but for the future of horse racing in Florida,” Curry said.

Lonny Powell

Lonny Powell, CEO of the Florida Thoroughbred Breeders’ and Owners’ Association (FTBOA,) had many thoughts about the issue.

Star-Banner: Could HB 105 affect Ocala Breeders’ Sales in Ocala? If so, how?

Powell: HB 105 would devastate Florida’s thoroughbred industry by removing the requirement that pari-mutuel thoroughbred permit holders host live races, a change that would allow them to operate solely as slot machine facilities or cardrooms instead.

Backed by Gulfstream Park’s Canada-based owners, and supported by Tampa Bay Downs, this move, known as “decoupling,” would cut racing opportunities, driving down demand for Florida-bred horses, and shrink sales revenue and purse winnings.

Ocala Breeders’ Sales thoroughbred auctions generate over $180 million each year. Marion County, the global leader in 2-year-old thoroughbred sales (racehorses in training), would be hit the hardest, threatening the local economy and Florida’s status as a horse racing powerhouse.

On top of the local economy, the legislation would gravely impact the thoroughbred industry throughout the state, which has a $3.24 billion total economic impact.

Star-Banner: How many thoroughbreds in Florida races have connections to Marion County?

Powell: Marion County is the heart of America’s thoroughbred industry, with up to 75% of all U.S. juvenile thoroughbreds receiving their early training here.

Florida-bred and trained thoroughbreds are a formidable presence on the state’s racing scene, making up 40% of the starting gate, 40% of wins, and 40% of purse earnings throughout the year across all Florida races.

Unlike other states that emphasize competition restricted to local horses, Florida (like Kentucky) embraces a global stage, proving the strength and caliber of our thoroughbreds against the world’s best.

As the global epicenter for 2-year-old thoroughbred sales and training, Marion County continues to shape the future of elite racing. But the proposed legislation would put this all in jeopardy.

OBS

In a strongly worded open letter, officials at OBS, or Ocala Breeders’ Sales Company, Inc., wrote: “With an economic impact of more than $3.2 billion to the state, the importance of the thoroughbred industry in Marion County, and Florida as a whole, cannot be overstated. Any action that threatens the viability of our racing and breeding operations is deeply troubling and unacceptable.”

The letter also says: “It is important to understand that the bill for decoupling is in the initial stages and has a long way to get to the finish line.”

The letter says that the effort to approve decoupling “is ill founded and will favor one company while inflicting wide reaching damage to a signature industry of Florida and more importantly the livelihood of the thousands of people that rely upon the stability of the thoroughbred industry.”

State Rep. Yvonne Hayes Hinson

The Democrat, whose district includes Marion County, said in a statement to the Star-Banner that “Marion County’s economy is heavily dependent on horse racing, as the thoroughbred racing industry alone contributes $3.24 billion to Florida’s economy — a number that would deflate if HB 105 were to pass.”

She said if the bill becomes law it would be a “death knell for thoroughbred racing nationwide.”

State Sen. Stan McClain

The Republican, whose district includes Marion, is a former county commissioner and state representative. He does not support decoupling, saying it would “devastate the thoroughbred industry in Marion County and the state of Florida.”

McClain notes: “Marion County is home to 75,000 horses, making it the largest single-county equine population in the United States. Of those, 34,000 are thoroughbreds.”

Gulfstream Park

In a statement to the Star-Banner, Gulfstream officials said: “The challenges facing thoroughbred racing in Florida cannot be ignored. While stakeholders may have different visions for the industry’s future, we share a common goal: fostering constructive, forward-thinking dialogue to address today’s challenges.

“Our commitment to modernization remains steadfast, and we believe in working together on a sensible and sustainable long-term solution.”

Contact Austin L. Miller at austin.miller@starbanner.com