Editor’s Note:
This guest op-ed was submitted by Don Johnson, the first Executive Director of the Wyoming Pari-Mutuel Commission, who served under Governors Ed Herschler and Mike Sullivan. His perspective offers historical context and firsthand insight into the original intent of Wyoming’s gaming laws as lawmakers consider the future of the state’s gaming and horse racing industries.
As the first Executive Director of the Wyoming Pari-Mutuel Commission under Governors Ed Herschler and Mike Sullivan, I am writing to offer a perspective on the current political and regulatory crossroads facing Wyoming’s gaming industry.
To understand where we are headed, we must first return to why this industry was created in the first place. More than forty years ago, well before I arrived in Wyoming, the pari-mutuel system was built on three clear and non-negotiable pillars.
The Original Mission
1. The State as the Primary Beneficiary
Pari-mutuel wagering was established to serve the citizens of Wyoming. Its purpose was to keep gaming revenue within our borders, strengthening the local economy—not to funnel profits to outside interests with little long-term investment in the state.
2. Regulatory Integrity
The Commission was designed to be a strict and credible watchdog, ensuring the highest standards of integrity. This oversight protects both the wagering public and industry participants, guaranteeing a fair, transparent, and trustworthy system.
3. A Path to Self-Sustainability
The long-term vision was for the industry to evolve through growth and technological advancement, such as historical horse racing (HHR), and eventually stand on its own. Subsidies were never intended to be permanent; they were meant to serve as a bridge, not a crutch.
Given the dramatic technological changes since those early years, it is now more realistic and more responsible to pursue sustainable coexistence between gaming and horse racing. That means creating renewed interest in racing through grassroots education and outreach, rather than relying indefinitely on financial support.
Where We’ve Drifted
Recent Senate review hearings, where legislative leaders have asked questions such as “Who is playing these machines?” and “Where is the money going?”, underscore how far we have drifted from the original mission.
These are fundamental questions, and the fact that they are being asked now reflects the industry’s failure to clearly demonstrate its relevance to Wyoming’s broader economic and cultural goals.
The Path Forward: Investing in Wyoming’s Future
A meaningful solution begins with tying any new gaming legislation to direct investment in youth education and workforce development.
We should be creating clear career pathways not only within horse racing, but across the support industries that define Wyoming: agriculture and ranching.
These sectors are the backbone of our state’s identity. By reinvesting gaming revenue into the next generation of ranchers, farmers, and equine professionals, we ensure that gaming serves a higher purpose, one that preserves the Wyoming way of life rather than simply monetizing it.
A Call for Clarity
If Wyoming’s legislators wish to move the state toward a Nevada-style gambling model, that intent should be stated plainly. There is nothing inherently wrong with gambling; I am not opposed to it, but honesty matters.
Wyoming deserves transparency about what we are building, why we are building it, and who ultimately benefits.
We must return to the core values that guided the original law and ensure that today’s decisions truly serve the people of Wyoming, not just in the short term, but for generations to come.
Respectfully,
Don Johnson
Former Executive Director
Wyoming Pari-Mutuel Commission
