Institut suisse de droit comparé
Schweizerisches Institut für Rechtsvergleichung
Istituto svizzero di diritto comparato
Swiss Institute of Comparative Law
PORTUGAL
ISDC - Dorigny - CH-1015 Lausanne (Suisse) - tél. +41 21 692 49 11 - fax +41 21 692 49 49
www.isdc.ch - [email protected]
I.
INTRODUCTION
I.
INTRODUCTION
1.
General approach to gambling
PORTUGAL
The basic rule is that Portuguese law prohibits private persons and other entities to freely
engage in the exploitation of gambling.
Gaming can be allowed by a special authorization of the State.
The authorizations are awarded for fixed periods of time and are subject to strict regulation
and control.
In a recent report prepared for the Portuguese Government699, a Working group enumerated
the reasons justifying the well framed environment in the framework of which gaming may be
exploited. Gaming, states the Report, is an «atypical and sensitive economic activity»
belonging to public order, which must be closely scrutinized in order to prevent organized
crime and money laundering700. For sake of consumers and families protection, and in order
to «sublimate the human tendency to gambling», the State undertook to regulate each area
of gaming701, keeping the few persons and entities allowed to exploit gaming under tight
control.
Portugal accords an exclusive right at the national level to operate lottery and lotterylike gaming, to the charity entity Santa Casa da Misericordia de Lisboa (SCML).
The Working group's report does not directly explain why the attribution of such exclusive
right to the SCML would strengthen consumers protection, but making reference to the
ANOMAR case, it understates that the channelling of gaming throughout this entity, the State
can better regulate and control the gaming modalities, thus defining at each moment the
acceptable volume of the legal offer of gaming to the public702.
Portugal has several laws dealing with money laundering. Article 4 of Decreto-Lei n.º
325/95703 imposes anti-money laundering obligations on casinos and art. 7 impose similar
duties on entities paying lottery gains.
699
700
701
702
703
Paula Teixeira da Cruz, António da Anunciação Duarte, Joaquim Caldeira, Maria João
Abecasis, Fernando Paes Afonso, Relatório, in:
http://www.portugal.gov.pt/NR/rdonlyres/60D9C068-25EE-4DA2-9901865ED681F7A9/0/Rel_Final_Mercado_Jogos.pdf
Ibid.
Ibid.
Ibid.
Decreto-Lei n.º 325/95, DATA: Sábado, 2 de Dezembro de 1995 NÚMERO: 278/95 SÉRIE I-A
EMISSOR: Ministério da Justiça DIPLOMA/ACTO: SUMÁRIO: Estabelece medidas de natureza
preventiva e repressiva contra o branqueamento de capitais e outros bens provenientes dos
crimes PÁGINAS DO DR: 7510 a 7514, in:
http://www.policiajudiciaria.pt/htm/legislacao/dr_branqueamento/DL325_95.htm . Also Lei
n.º 11/2004, DATA: Sábado, 27 de Março de 2004 NÚMERO: 74 SÉRIE I-A EMISSOR:
Assembleia da República SUMÁRIO: Estabelece o regime de prevenção e repressão do
branqueamento de vantagens de proveniência ilícita e procede à 16.ª alteração ao Código
Penal e à 11.ª alteração ao Decreto-Lei n.º 15/93, de 22 de Janeiro, PÁGINAS DO DR: 1980 a
1989, art. 20 a) and c), in:
http://www.policiajudiciaria.pt/htm/legislacao/dr_branqueamento/lei11_2004.htm
- 652 -
I.
INTRODUCTION
2.
Definitions
PORTUGAL
Games of chance
Games of chance are stakes where the result is uncertain, as it is based solely or mainly on
luck704 such as:
a.
b.
c.
d.
e.
f.
g.
h.
Banked games in single or double banks: punto banco, baccarat, French banker, boule,
cussec, banked écarté, French roulette and zero American roulette;
Banked games in single banks: blackjack/21, chukluck and trente et quarante.
Banked games in double banks: limited bank baccarat and craps;
Banked game: keno;
Non-banked games: chemin de fer, baccarat, open bank baccarat, écarté and bingo;
Games in slot-machines paying prizes directly in chips or coins;
Games in machines that, although not paying prizes directly in chips or coins, develop
themes characteristic of games of chance or show, as a result, scores that depend
solely or mainly on luck705.
Raffle, Tombola, Aleatory combinations.
Raffles, tombolas, lottery, advertisement contests, quiz and entertainment shows
Raffles, tombolas, lottery, advertisement contests, quiz and entertainment shows are games
similar to «games of chance» offered to the public where the hope for gain lies both in the
player's chance and skills or only in luck, giving prizes with an economic value.706
Mutual and Sports betting
Mutual betting (concursos de apostas mútuas) are betting operations in which the
participants forecast or guess results of one or more competitions or drawings in order to win
the right to a price in money or another price707. In Portugal there are no fixed odds.
Totobola
Totobola are contests of mutual betting based on the results (winning, draw, defeat) of
football games708.
704
705
706
707
708
«Article 1 Games of chance. Games of chance are those the result of which is contingent, as it
is based solely or mainly on luck» in: Gambling Law Decree-Law No. 422/89 of 2nd December.
Gambling Law Decree-Law No. 422/89 of 2nd December, art. 159
Ibid.
«Consideram-se «concursos de apostas mútuas» todos aqueles em que os participantes
prognostiquem ou prevejam resultados de uma ou mais competições ou de sorteios de
números para obter o direito a prémios em dinheiro ou a quaisquer outras recompenses» in:
Decreto-Lei n.º 317/2002 (Rectificações) ANEXO Republicação do Decreto-Lei n.º 84/85
Artigo 2.
Decreto-Lei n.º 317/2002 (Rectificações), Altera o Decreto-Lei n.º 84/85, de 28 de Março Anexo
art. 2.
- 653 -
I.
INTRODUCTION
PORTUGAL
Totoloto
Totoloto are contests of mutual betting in which participants have to guess the numbers of a
draw709.
Lottery
A contest in which clients purchase a numbered ticket or billet to participate in a drawi710.
Casino
Casinos are establishments belonging to the private domain of the State or reversible to it,
affected to the practice of games of fortune or luck and complementary activities in a regime
of concession, fundamentally assuring the honesty of games, the commodity of gamblers
and a tourist offer of high quality711.
Horse racing
Horse race betting are mutual betting based in the results of horse racing, either flat races,
obstacles or trotting712.
Bingo
The Bingo is a non-banked game of luck or chance
713
.
Gaming machines
Machines the results of which depend exclusively or mainly on the player's skill and which
grant prizes in money, chips or things with economic value, even if this value is small714.
709
710
711
712
713
714
Ibid.
«Lotaria Nacional - 1 — A Lotaria Nacional é explorada sob a forma de emissões de bilhetes
numerados para participação em sorteios de números, denominados por Extracções» in:
REGULAMENTO DA LOTARIA NACIONAL arts. 1-2, N.o 126 — 31 de Maio de 2001 DIÁRIO
DA REPÚBLICA — I SÉRIE-B 3249.
«Artigo 27.º Casinos 1 – Os casinos são estabelecimentos do domínio privado do Estado ou
para ele reversíveis, pelo mesmo afectados à prática e exploração de jogos de fortuna ou azar
e actividades complementares, em regime de concessão, nas condições estabelecidas no
presente diploma, e que visam, fundamentalmente, assegurar a honestidade do jogo, a
concentração e comodidade dos jogadores e proporcionar uma oferta turística de alta
qualidade» in: Decreto-Lei n.º 10/95 de 19 de Janeiro Anexo Decreto-Lei n.º 422/89
de 2 de Dezembro.
«Artigo 1º Apostas mútuas hípicas. A exploração de apostas mútuas com base nos resultados
de corridas de cavalos, planas, de obstáculos e de trote» in: Decreto-Lei nº 268/92 de 28 de
Novembro
«O bingo é um jogo de fortuna ou azar não bancado» in: Anexo a que se refere o Artigo 1.º do
Decreto-Lei n.º 314/95 de 24 de Novembro Regulamento da Exploração do Jogo do Bingo
(REJB) Art 1.
Gambling Law Decree-Law No. 422/89 of 2nd December, art. 162.
- 654 -
I.
INTRODUCTION
3.
Taxes
PORTUGAL
The SCML is not taxed on its lottery and other gaming operations. It benefits of a tax exemption for the fact that revenues are compulsory destined to other entities (Decree-Law n° 262,
12.12.2003). The SCML pays VAT for all goods and services purchased on a rate fluctuating
from 5% and 21%. The prizes themselves are taxed with rates up to 35% (Euromillions 0%,
Totoloto, Loto 2 and Jocker-35%, Totobola, Lotaria Nacional and Lotaria Instantânea 25%).
According to article 84 of Decree-Law No. 422/89 of 2nd December, a special gaming tax
should be collected from gaming operators. The tax for Casino gaming operations fluctuates,
according to the region where the casino is installed, between 30-50% of their gross
revenue.
The tax applied to the operation of Bingo outside casinos is 25%. The tax does not fluctuate.
A stamp duty may be levied on access cards to gambling rooms (2-20 Euros) run by entities
which do not benefit from exemptions and are not subject to the Special gaming tax.
- 655 -
II.
LISTING
II.
LISTING
A)
LEGISLATION ENACTED
a)
Federal
1.
General
–
Decreto-Lei n.º 15/2003, de 30 de Janeiro, define as normas aplicáveis à instalação
de um segundo casino integrado na zona de jogo do Estoril (IAPMEI), Installation of a
new casino in Estoril.
–
Decreto-Lei nº 310/2002 de 18 de Dezembro, com o presente diploma atribui-se às
câmaras municipais competência em matéria de licenciamento de actividades diversas
até agora cometidas aos governos civis. Assim, passam a ser objecto de licenciamento
municipal o exercício e fiscalização das seguintes actividades: guarda-nocturno; venda
ambulante de lotarias; arrumado de automóveis; realização de acampamentos
ocasionais; exploração de máquinas automáticas, mecânicas, eléctricas e electrónicas
de diversão; realização de espectáculos desportivos e de divertimentos públicos nas
vias, jardins e demais lugares públicos ao ar livre; venda de bilhetes para espectáculos
ou divertimentos públicos em agências ou postos de venda; realização de fogueiras e
715
queimadas, e realização de leilões . Attribution of competences to the Municipalities
for the issuing of licenses.
–
Decreto-Lei n.º 317/2002 (Rectificações). Altera o Decreto-Lei n.º 84/85, de 28 de
Março, que estabelece normas relativas à organização e exploração dos concursos de
apostas mútuas denominados Totobola e Totoloto716. Totobola and Totoloto
–
Decreto-Lei n.º 124/2000 de 5 de Julho - Os encargos com a IGJ serão integralmente
suportados com a compensação em receitas provenientes de empresas
717
concessionárias das zonas de jogo . Expenses of the general inspection of games to
be settled with incomes of gaming licensees.
–
Decreto-Lei n.º 316/95, de 28 de Novembro, estabelece o regime do licenciamento e
de exploração de máquinas de diversão (IGJ), alterado pelo Decreto-Lei n.º 264/2002,
de 25 de Novembro, o qual transfere competências dos Governadores Civis para as
Câmaras Municipais (IAPMEI). Gaming machines – licensing.
–
Decreto-Lei n.º 314/95, de 24 de Novembro, aprova o Regulamento da Exploração
do Jogo do Bingo - REJB (IGJ) Bingo
–
Decreto-Lei nº 268/92 de 28 de Novembro
–
Decreto-Lei n.º 191/90 de 8 de Junho, fiscalização comparticipação das empresas
concessionárias. Licensees
–
Decreto-Lei n.º 422/89, de 2 de Dezembro, aprova a Lei do Jogo, alterada pelo
Decreto-Lei n.º 10/95, de 19 de Janeiro (IGJ). Gaming Law
–
Law Decree nº 184/88 - The Gaming Board718
715
http://www.igjogos.pt/Portugues/(2,2,6)DocLegLeiMaqDiv.php?leimaquinas=2
http://dre.pt/cgi/dr1s.exe?t=d&cap=1-202&doc=20023902&v02=&v01=2&v03=2002-0101&v04=2002-12-31&v05=&v06=&v07=&v08=&v09=&v10=&v11=%27DecretoLei%27&v12=317%2F2002&v13=&v14=&v15=&sort=0&submit=Pesquisar&d=2005-02-16
http://www.min-economia.pt/port/ministerio/diplomas/p_dl124_2000.html
http://www.igjogos.pt/Ingles/(2,2,1)DocLegLeiOrg.php
716
717
718
LEGISLATION ENACTED
- 656 -
PORTUGAL
II.
LISTING
LEGISLATION ENACTED
PORTUGAL
–
2.
Decreto-Lei n.º 450/82, de 16 de Novembro, cria e regula a Inspecção-Geral de
Jogos, como alterado pelo Decreto-Lei n.º 184/88, de 25 de Maio, modificado pelo
Decreto-Lei n.º 191/90, de 8 de Junho, e pelo Decreto-Lei n.º 124/2000, de 5 de Julho
(IGJ). General Inspection of Games.
Lotteries
–
Comunicado do Conselho de Ministros de 17 de Janeiro de 2003719
–
Decreto-Lei n.º 282/2003 de 8 de Novembro720 .
–
Comunicado do Conselho de Ministros de 20 de Novembro de 2002. O Conselho
de Ministros, na sua reunião de hoje, que teve lugar na Presidência do Conselho de
Ministros, aprovou os seguintes diplomas: Decreto - Lei que altera o Decreto-Lei n.º
84/85, de 28 de Março, que estabelece normas relativas à organização e exploração
dos concursos de apostas mútuas denominados totoloto e totobola721. Totoloto and
Totobola.
3.
Casino Gaming
–
Decreto-Lei nº 15/2003 de 30 de Janeiro. Define as normas aplicáveis à instalação
de um segundo casino integrado na zona de jogo do Estoril722. Installation of a new
casino in Estoril.
–
Decreto-Lei n.º 10/95 de 19 de Janeiro723
–
Gambling Law Decree-Law No. 422/89 of 2nd December724 .
4.
Machine Gambling Outside Casinos (only recreative machines)
Slot machines can only be operated in casinos725.
–
Decreto-Lei n.º 10/95 de 19 de Janeiro726
–
Gambling Law Decree-Law No. 422/89 of 2nd December727.
719
720
721
722
723
724
725
726
727
http://www.portugal.gov.pt/Portal/PT/Governos/Governos_Constitucionais/GC15/Conselho_de
Ministros/Comunicados_e_Conferencias_de_Imprensa/20030117.htm
http://www.portolegal.com/TotolotoNet.htm
http://www.portugal.gov.pt/Portal/PT/Governos/Governos_Constitucionais/GC15/ Conselho_de_
Ministros/Comunicados_e_Conferencias_de_Imprensa/20021120.htm
http://www.iapmei.pt/iapmei-leg-03.php?lei=1514
http://www.min-economia.pt/port/ministerio/diplomas/p_dl10_95.html
http://www.igjogos.pt/Ingles/(2,2,2)DocLegLJ.php?leijogo=1
Maquinas de diversao - Decreto-Lei nº 310/2002 de 18 de Dezembro, com o presente diploma
atribui-se às câmaras municipais competência em matéria de licenciamento de actividades
diversas até agora cometidas aos governos civis. Assim, passam a ser objecto de
licenciamento municipal o exercício e fiscalização das seguintes actividades: guarda-nocturno;
venda ambulante de lotarias; arrumado de automóveis; realização de acampamentos
ocasionais; exploração de máquinas automáticas, mecânicas, eléctricas e electrónicas de
diversão; realização de espectáculos desportivos e de divertimentos públicos nas vias, jardins e
demais lugares públicos ao ar livre; venda de bilhetes para espectáculos ou divertimentos
públicos em agências ou postos de venda; realização de fogueiras e queimadas, e realização
de leilões: http://www.igjogos.pt/Portugues/(2,2,6)DocLegLeiMaqDiv.php?leimaquinas=2
http://www.min-economia.pt/port/ministerio/diplomas/p_dl10_95.html
http://www.igjogos.pt/Ingles/(2,2,2)DocLegLJ.php?leijogo=1
- 657 -
II.
LISTING
5.
Betting
–
Resolução do Conselho de Ministros nº 106/96. O Decreto-Lei nº 268/92, de 28 de
Novembro, autorizou a exploração das apostas mútuas com base nos resultados das
corridas de cavalos728. Horse betting.
–
Resolução do Conselho de Ministros nº 45/95. O Decreto-Lei nº 268/92, de 28 de
Novembro, estabeleceu o regime jurídico regulador da exploração de apostas mútuas
com base nos resultados das corridas de cavalos729. Horse betting
–
Decreto-Lei nº 268/92 de 28 de Novembro. As corridas de cavalos constituem uma
importante actividade, não só pelo estímulo que conferem à criação equídea, mas
também pelos efeitos benéficos que delas resultam para a economia em geral, em
termos de fomento de exportações, de emprego e de melhoria da oferta turística.
Neste contexto, Portugal é dos poucos países da Europa onde não se realizam
corridas de cavalos730. Horse races.
–
Decreto nº 40910. Tendo em atenção o disposto no artigo 28º do Decreto-Lei nº 36
889, de 29 de Maio de 1948;Usando da faculdade conferida pelo nº 3º do artigo 109º
da Constituição, o Governo decreta e eu promulgo o seguinte: Artigo 1º Às entidades
que, com prévia autorização do organismo competente, organizem corridas de cavalos
ou provas de obstáculos em recinto fechado é consentida a exploração da aposta
mútua, nos termos do regulamento anexo, que faz parte integrante deste diploma731.
Horse racing.
6.
Bingo
–
Regulamento Nº 1/2001 de 3 de Abril de harmonia com o estabelecido no nº 1 do art.
27º do Decreto Regulamentar nº 76/86, de 31 de Dezembro, competia à InspecçãoGeral de Jogos emitir circulares de instruções necessárias à regularidade da
exploração das salas de jogo do bingo732. Exploiting of Bingo.
–
Resolução do Conselho de Ministros n.º 179/96 determina que as percentagens da
receita bruta da venda dos cartões que constituem receita dos concessionários das
salas de jogo do bingo fora dos casinos são estabelecidas por resolução do Conselho
de Ministros733. Bingo earnings.
–
Decreto-Lei n.º 314/95 de 24 de Novembro734
–
Decreto-Lei n.º 10/95 de 19 de Janeiro735
–
Portaria n.º 880/93 de 15 de Setembro. O artigo 5.º do Decreto Regulamentar n.º
76/86, de 31 de Dezembro, com a redacção que lhe foi dada pelo artigo 1.º do Decreto
Regulamentar n.º 19/93, de 5 de Julho, determina que os termos e condições de
abertura dos concursos para adjudicação da exploração de salas de jogo do bingo fora
dos casinos são fixados por portaria do membro do Governo da tutela. Assim, ao
abrigo do n.º 1 do artigo 5.º do Decreto Regulamentar n.º 76/86, de 31 de Dezembro,
com a redacção que lhe foi dada pelo artigo 1.º do Decreto Regulamentar n.º 19/93, de
728
http://www.igjogos.pt/Portugues/(2,2,5)DocLegRAMHipicas.php?apostasmutuas=4
http://www.igjogos.pt/Portugues/(2,2,5)DocLegRAMHipicas.php?apostasmutuas=3
http://www.igjogos.pt/Portugues/(2,2,5)DocLegRAMHipicas.php?apostasmutuas=2
http://www.igjogos.pt/Portugues/(2,2,5)DocLegRAMHipicas.php?apostasmutuas=1
http://www.igjogos.pt/Portugues/(2,2,4)DocLegLB.php?leibingo=2
http://www.igjogos.pt/Portugues/(2,2,4)DocLegLB.php?leibingo=5
http://www.igjogos.pt/Portugues/(2,2,4)DocLegLB.php?leibingo=1
http://www.min-economia.pt/port/ministerio/diplomas/p_dl10_95.html
729
730
731
732
733
734
735
LEGISLATION ENACTED
- 658 -
PORTUGAL
II.
LISTING
LEGISLATION ENACTED
PORTUGAL
5 de Julho: Manda o Governo, pelo Ministro do Comércio e Turismo, o seguinte: 1.º É
aprovado o programa dos concursos para adjudicação de concessões de exploração
de salas de jogo do bingo fora dos casinos, anexo a esta portaria736. Exploitation of
Bingo outside casinos.
–
Decree-Law No. 422/89 of 2nd December Gambling Law
–
Despacho normativo Nº. 80/85 O Decreto Regulamentar nº 18/85, de 19 de Março,
alterou algumas disposições do Decreto Regulamentar nº. 41/82, de 16 de Julho, que,
por sua vez, obrigam a que se proceda à correcção de certas normas do Regulamento
do Jogo do bingo, aprovado pelo Despacho Normativo nº. 148/82, de 29 de Junho,
publicado no Diário da República, 1ª Série, nº. 162, de 16 de Junho de 1982737. Bingo,
regulations.
7.
Media Gambling Services
–
Decree-Law No. 422/89 of 2nd December Gambling Law
8.
Sales promotional gambling
–
Regulamento Nº 1/2001 de 3 de Abril
–
Decreto-Lei n.º 330/90 de 23 de Outubro CÓDIGO DA PUBLICIDADE (Com as
alterações introduzidas pelos Decretos-Lei n.º 74/93, de 10 de Março, n.º 6/95, de 17
de Janeiro e nº61/97 de 25 de Março, n.º275/98 de 9 de Setembro)738. Code of
Publicity.
–
Decree-Law No. 422/89 of 2nd December Gambling Law, art. 159, 161
9.
Charity organizations
–
Decreto-Lei n.º 282/2003 de 8 de Novembro
–
Decreto-Lei n.º 84/85 direito de promover concursos de apostas mútuas é reservado
ao Estado, que concede à Santa Casa da Misericórdia de Lisboa a sua organização e
exploração em regime de exclusivo para todo o território nacional739. Betting.
–
Decree-law nº 322 of 1991 Santa Casa da Misericórdia de Lisboa740 - Statutes / Inner
Organization741,
–
Decreto-Lei n.º 330/90 de 23 de Outubro CÓDIGO DA PUBLICIDADE (Com as
alterações introduzidas pelos Decretos-Lei n.º 74/93, de 10 de Março, n.º 6/95, de 17
de Janeiro e nº61/97 de 25 de Março, n.º275/98 de 9 de Setembro). Code of Publicity.
736
http://www.igjogos.pt/Portugues/(2,2,4)DocLegLB.php?leibingo=7
http://www.igjogos.pt/Portugues/(2,2,4)DocLegLB.php?leibingo=6
http://www.aacs.pt/index.htm
http://dre.pt/cgi/dr1s.exe?t=d&cap=1-202&doc=20023902&v02=&v01=2&v03=2002-0101&v04=2002-12-31&v05=&v06=&v07=&v08=&v09=&v10=&v11=%27DecretoLei%27&v12=317%2F2002&v13=&v14=&v15=&sort=0&submit=Pesquisar&d=2005-02-16
(login needed)
http://www.scml.pt/default.asp?site=scml&id=1&mnu=1 (homepage)
http://www.scml.pt/default.asp?site=eng
737
738
739
740
741
- 659 -
II.
LISTING
b)
Provincial
LEGISLATION ENACTED
Not relevant for Portugal.
- 660 -
PORTUGAL
II.
LISTING
DRAFT LEGISLATION
PORTUGAL
B) DRAFT LEGISLATION
a)
Federal
1.
General
–
Draft decree on interactive gaming, presented to the Portuguese government by the
Inspectorate General on Gaming in Portugal742.
2.-9.
No information available.
b)
Provincial
Not relevant for Portugal.
742
Gaming Regulators European Forum Administrator’s office: Netherlands gaming control board
86 Lange Voorhout - 2514 EJ The Hague - The Netherlands - website www.gref.net.
- 661 -
II.
LISTING
SELF-REGULATIONPORTUGAL
C)
SELF-REGULATION
No information available.
- 662 -
II.
LISTING JURISPRUDENCE
PORTUGAL
D)
JURISPRUDENCE
a)
Federal
1.
General
–
0240988 Tribunal da Relação de Porto 06.4.2005 Illegal Gaming machines.
–
0731/3 Supremo tribunal administrativo 23.9.2004, Casino concessions.
Competence of the Government to allow opening of a second casino in a zone where
the licensee already runs one casino.
–
Tribunal Constitucional 1ª Secção do ACÓRDÃ0 Nº 99/02 Proc. nº 482/01
Rel.: Consº Luís Nunes de Almeida 27.2.2002
–
Supremo tribunal administrativo N° 023078, 03.12.1991
–
Legal opinion by the Consultant Council of the General Prosecutor of the
Republic Nº Convencional: PGRP00001073 Parecer: P000441998 Nº do Documento:
PPA19980924004400, 1998 «The game of history» Data do Jornal Oficial: 17.03.1999
–
Legal opinion by the Consultant Council of the General Prosecutor of the
Republic Nº Convencional: PGRP00001036 Parecer: P000111998 Nº do Documento:
PPA199907081100, 1999 «The game of history» Data do Jornal Oficial: 03-01-2000
2.
Lotteries
–
Legal opinion by the Consultant Council of the general Prosecutor of the
Republic Nº Convencional: PGRP00001036 Parecer: P000111998 Nº do Documento:
PPA199907081100
«The game of history».
3.
Casino Gaming
–
Supremo tribunal administrativo N° 044757, 13.10.2004 Casinos.
Competences of licensees and the Administration to refuse entrance to gaming places.
Supremo tribunal administrativo N° 0731/3, 23.9.2004 Casino
Concessions Competence of the Government to allow opening of a second casino in a
zone where the licensee already runs one casino.
–
Supremo tribunal administrativo N° 044572, 23.6.2004 Casino
Competences of licensees and the Administration to refuse entrance to gaming places.
–
Supremo tribunal administrativo N° 0421/02, 02.6.2004 Casino
Competences of control of access of persons to gaming places
–
Supremo tribunal administrativo N° 044798, 12.11.2003 Casino
Competences of licensees and the Administration to refuse entrance to gaming places.
–
Supremo tribunal administrativo N° 0421/02, 30.9.2003 Casinos
Competences of licensees and the Administration to refuse entrance to gaming places.
–
Supremo tribunal Administrativo Processo: 0269/02
Data do Acordão: 09/04/2003 Tribunal: 3 SUBSECÇÃO DO CA Relator: ANGELINA
DOMINGUES.
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II.
LISTING JURISPRUDENCE
–
Supremo tribunal administrativo JSTA N° 00060727, 09.4.2003 Casino
concession Government competences to award licenses to run casinos.
–
Supremo tribunal administrativo N° 044798, 22.5.2002 Casinos
Competences of licensees and the Administration to refuse entrance to gaming places.
–
Supremo tribunal administrativo N° 045972, 24.1.2002 Casinos
Prohibition to certain persons to enter to into a casino.
–
Supremo tribunal administrativo N° 043629, 16.10.1999 Casinos
Application of sanctions to licensee for transfer of jackpots to non - authorized
machines.
–
Supremo tribunal administrativo N° 044798, 04.5.1999 Casinos
Competences of licensees to refuse entrance to gaming places
–
Supremo tribunal administrativo JSTA N° 00057691, 24.3.1999 Casinos
Prohibition to certain persons to enter to into a casino.
–
Supremo tribunal administrativo JSTA N° 00060618, 19.1.1999 Casinos
Competences of licensees and the Administration to refuse entrance to gaming places.
–
Supremo tribunal administrativo N° 023078, 03.12.1991 Casinos
Responsibility of licensee for allowing entrance to gaming place to an individual
forbidden from gaming.
–
Supremo tribunal administrativo N° 019813, 15.2.90 Casino
Administrative sanctions for money loan in casinos
–
Acórdão do Supremo Tribunal de Justiça 040442 JSTJ00009468
MENDES PINTO JOGO DE FORTUNA E AZAR CASINO SJ198912130404423
13.12.89 UNANIMIDADE REC PENAL. NEGADO PROVIMENTO. DIR CRIM - DIR
PENAL ECON. CPP29 ART666. DL 22/85 DE 1985/01/17 ART1 ART3.
DL 48912 DE 1969/03/18 ART4 N4 ART15 N2 ART45 N4 ART56. Prohibition to exploit
gambling outside a casino located in an authorized zone.
4.
Machine Gambling Outside Casinos
–
Tribunal da Relação de Porto N° 0240988, 06.4.2005 - Illegal Gaming machines.
–
Supremo tribunal administrativo N° 047836, 13.10.2004 Gaming machines.
Relations between licensee and gamblers.
–
Supremo tribunal administrativo JSTA00059610, 02.7.2003, Machine gaming:
Competence of the government to intervene, under denounciation by of a private
person, to request a casino to pay for jackpot gains in a gaming machine.
–
Acórdão do Supremo Tribunal de Justiça 98P631 JSTJ00035278 LEONARDO
DIAS JOGO DE FORTUNA E AZAR SJ199811110006313 11.11.98 UNANIMIDADE
88/97 07.02.98. Gaming machines, exclusive to exploit belongs to the State who may
attribute concessions.
5.
Betting
–
PORTUGAL
No sources found.
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II.
LISTING JURISPRUDENCE
PORTUGAL
6.
Bingo
–
Acórdão do Supremo Tribunal Administrativo N° 047563, 06.02.2003 Bingo
Attribution of concessions
7.
Media Gambling Services
–
No sources found.
8.
Sales Promotional Gambling
–
Legal opinion by the Consultant Council of the general Prosecutor of the
Republic Nº Convencional: PGRP00001036 Parecer: P000111998 Nº do Documento:
PPA199907081100, 1999 «The game of history» Data do Jornal Oficial: 03-01-2000
9.
Charity Gambling
–
No sources found.
b)
Provincial
Not relevant for Portugal.
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III.
BARRIERS Panorama
III.
BARRIERS
a)
Panorama
1.
General
PORTUGAL
Portugal created a system of «gaming zones», in the framework of which gaming can be
operated after obtaining a concession from the authorities.
This does not apply to lotteries and similar activities, because Portugal accorded a national
monopoly on lottery and lottery-like gaming to the charity entity Santa Casa da
Misericordia de Lisboa (SCML).
Internet gambling is not allowed in Portugal. The Government is currently examining a
law proposal to regulate this activity. According to Art. 11 of the draft (presented to the
Portuguese government by the Inspectorate General on Gaming in Portugal743), only
individuals who are resident in the Portuguese territory may have access to the interactive
gaming system. However, access to the interactive gaming system by residents of States the
legislation of which allows the practice of the same games to residents of Portugal, may be
authorised by order of the Minister of Economy. Article 30 to the draft (Access to and
publicity of interactive games exploited by foreign operators) provides that an administrative
fine up to 100,000.00 euros shall be paid by whoever, in any way, enables access to
interactive gaming systems with headquarters in foreign countries, or with headquarters in
the Portuguese territory and operated by an entity that is not duly authorised under the
terms of the Draft.
2.
Lotteries
Lottery type gambling is the exclusive domain of a recognized charity entity: the SCML. This
entity has established a relationship of trust with the authorities and the general public based
primarily on social goals and its assistance to the disadvantaged, endeavouring to respond
to the most pressing needs of all those who turn to it for help every day in the greater Lisbon
area. The State awarded the exclusive right to operate lotteries to the SCML in order «to
ensure their association with good causes, in recognition of the trustworthiness and
credibility that [this institution] has demonstrated throughout its long history. The
public has recognised and accepted social games since they were launched and this has
helped SCML to implement programmes and social assistance projects».744
The games currently in exclusive operation of the SCML are the different lotteries– such as
the Clássica, Popular and Instantânea (in which players win a pre-established prize) and the
pari-mutuels (where players try to guess the results, and the amounts of the prizes are based
on the total number of bets placed).
The first game to be operated was the Lotaria Clássica. Successively, new games were
established, such as the Totobola, Totoloto, Lotaria Popular, Joker, Lotaria Instantânea, Loto
2 and Totogolo. In 2001, the SCML introduced a real-time betting system «which revolutionised its operations and placed it on a par with similar organisations in other countries».
743
744
Draft received from the Gaming Regulators European Forum Administrator’s office: Netherlands
gaming control board 86 Lange Voorhout - 2514 EJ The Hague - The Netherlands - fax + 31 70
361 43 56 - e-mail [email protected] - website www.gref.net
http://www.scml.pt/default.asp?site=eng&sub=&id=7&mnu=7
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III.
BARRIERS Panorama
PORTUGAL
Several provisions confirm the right of exclusivity afforded to the SCML745 (this also including
the right of the later to use, on a monopolistic basis, the names of games such as «Totobola»
and «Totoloto»746).
The law also provides for punitive measures for those selling or distributing tickets of
foreign gaming, or publishing such activities. It also punishes the promotion, organization, exploitation or participation in games similar to the ones operated by the SCML747.
3.
Casino Gaming
Portuguese law (Decreto-Lei n.º 84/85, de 28 de Março; Decreto-Lei n.º 422/89, de 2 de
Dezembro modificado por Decreto-Lei n.º 10/95 de 19 de Janeiro), allows gaming in
casinos (including gaming machines) established in specific gaming zones (the Azores,
Algarve, Espinho, Estoril, Figueira da Foz, Funchal, Porto Santo, Póvoa de Varzim, Troia
and in Vidago-Pedras Salgadas).
The games of chance allowed in casinos are:
a.
Banked games in single or double banks: punto banco baccarat, French banker, boule,
cussec, banked écarté, French roulette and zero American roulette;
b.
Banked games in single banks: blackjack/21, chukluck and trente et quarante.
c.
Banked games in double banks: limited bank baccarat and craps;
d.
Banked game: keno;
e.
Non-banked games: chemin de fer baccarat, open bank baccarat, écarté and bingo;
745
Decreto-Lei n.º 282/2003 de 8 de Novembro: Art 2 of may be a barrier because it attributes
exclusivity in the whole national territory to the SCML for exploiting remote gambling. Art.
11 may also be a barrier since ir punishes those exploiding by any electronic means the
games exclusively attributed to the SCDL.DIPLOMA/ACTO: Decreto-Lei n.º 317/2002
(Rectificações) DATA: Sexta-feira, 27 de Dezembro de 2002 NÚMERO: 299 SÉRIE I-A
EMISSOR: Ministério da Educação SUMÁRIO: Altera o Decreto-Lei n.º 84/85, de 28 de Março,
que estabelece normas relativas à organização e exploração dos concursos de apostas mútuas
denominados «Totobola» e «Totoloto» PÁGINAS DO DR: 8138 a 8143 in: Republicação do
Decreto-Lei n.º 84/85. Art. 1 may be an obstacle to free circulation since it awards to the SCML
the exclusive right to exploit lottery in Portuguese territory. Decreto-Lei nº 10/95 de 9 de
Janeiro (modifica Decreto-Lei n.º 422/89, de 2 de Dezembro):Art. 160 forbids selling of betting
tickets in places where tickets of a charity entity having the monopole on lotteries (SCML) are
sold. In other cases, the organization of fortune games is conditioned to the payment of charity.
DIPLOMA/ACTO: Decreto-Lei n.º 317/2002 (Rectificações) DATA: Sexta-feira, 27 de Dezembro
de 2002 NÚMERO: 299 SÉRIE I-A EMISSOR: Ministério da Educação SUMÁRIO: Altera o
Decreto-Lei n.º 84/85, de 28 de Março, que estabelece normas relativas à organização e
exploração dos concursos de apostas mútuas denominados «Totobola» e «Totoloto» PÁGINAS
DO DR: 8138 a 8143 in: Republicação do Decreto-Lei n.º 84/85. Art. 1 may be an obstacle to
free circulation since it awards to the SCML the exclusive right to exploit lottery in
Portuguese territory. Art. 2 para 4 may be a barrier because it attributes to the SCML the
monopolistic right to use the names «Totobola» and «Totoloto» and their respective signs.
DIPLOMA/ACTO: Decreto-Lei n.º 317/2002 (Rectificações) DATA: Sexta-feira, 27 de Dezembro
de 2002 NÚMERO: 299 SÉRIE I-A EMISSOR: Ministério da Educação SUMÁRIO: Altera o
Decreto-Lei n.º 84/85, de 28 de Março, que estabelece normas relativas à organização e
exploração dos concursos de apostas mútuas denominados «Totobola» e «Totoloto» PÁGINAS
DO DR: 8138 a 8143 in: Republicação do Decreto-Lei n.º 84/85. Art. 22 may be an obstacle to
free circulation since it imposes a fine on those selling or distributing tickets of foreign
betting, or publishing such activities. Art. 23 may be an obstacle to free circulation since it
declares illegal the promotion, organization, exploitation or participation in similar
games.
746
747
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III.
BARRIERS Panorama
PORTUGAL
f.
Games in slot-machines paying prizes directly in chips or coins;
g.
Games in machines that, although not paying prizes directly in chips or coins, develop
themes characteristic of games of chance or show, as a result, scores that depend
solely or mainly on luck.
Operation can start after obtaining a concession.
In effect, Art. 9 to Decreto-Lei nº 10/95 de 9 de Janeiro (modifica Decreto-Lei n.º 422/89, de
2 de Dezembro) states that the right to operate games of chance is reserved to the State
and may only be exercised by companies constituted as limited liability companies to
which the Government grants the respective concession by means of an
administrative contract. Concessions are awarded for fixed periods of time, but Art. 13 of
Decreto-Lei n.º 422/89, de 2 de Dezembro modificado por Decreto-Lei n.º 10/95 de 19 de
Janeiro, allows to extend the term of a concession by Governmental initiative or by
request of the concessionaires. This may hurt the expectations of would-be candidates
who planned to participate in the tender expected to be implemented when a concession
arrives to its term.
Other games provided for by law are those taking place in Portuguese boats or airplanes
navigating outside that State's territorial waters. To this end, authorizations may be
granted to companies that are owners or freighters of Portuguese ships or aircrafts, or
to concessionaire companies of gaming areas with permission of the former. This can be
done on the basis of Art. 6 of Decreto-Lei n.º 10/95 de 19 de Janeiro, which states that
Portugal may authorize Portuguese naval enterprises or concessionaires to exploit gaming in
Portuguese boats or air planes when sailing or flying outside the Portuguese territories.
Operating and practising gaming away from casinos existing in recognized gaming
areas without an authorization, constitutes a crime.
Slot machines can only be operated in casinos.
4.
Machine Gambling Outside Casinos
It is forbidden to operate gaming machines outside casinos. Art. 162 of Decreto-Lei nº
10/95 de 9 de Janeiro (modifica Decreto-Lei n.º 422/89, de 2 de Dezembro) forbids
exploitation of gaming machines that award money prizes on the basis of skills of the player.
Are also forbiden machines that sell products that award money prizes.
Amusement machines are allowed.748
5.
Betting
On the basis of articles 159, 160 and 161 of Decreto-Lei n.º 422/89, de 2 de Dezembro, nonauthorized betting activities are proscribed.
748
Decreto-Lei nº 316/95 de 28 de Novembro (amusement machines). Art. 20 attributes to the
governors the power of refusing a license or its renewal on behalf of the protection of children
and youth, to prevent criminality and to preserve or restore security, order or public tranquillity.
Art. 22 § 1 limits to three the number of machines that can be installed in a place that is not
completely devoted to exploitation of gaming. Decreto-Lei nº 310/2002 de 18 de Dezembro de
2002 (amusement machines) establishes that the license approval powers for gaming machines
is handed over from the Portuguese 108 Regional councils to the 308 local Councils. This limits
the free circulation of gaming machines between the Councils, because each time a machine
has to be moved, a new license issued by the new council becomes necessary.
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III.
BARRIERS Panorama
PORTUGAL
Decreto-Lei nº 268/92 of 28 November 1992, regulates horse betting. Bettings are allowed
inside and outside horse racing fields, under the strict terms of legislation. Art. 1 to this
Decree-law forbids betting on foreign horse races. Art. 22 forbids the advertising, the
selling and the distribution of tickets of foreign horse races. Art. 13.10 impose on
concessionary companies the obligation to promote the training of jockeys and other
related professions in Portugal.
Racing fields must be operated on the basis of a concession attributed after the realization
of a public tender.
6.
Bingo
Exploitation of Bingo outside casinos can be authorized in localities counting more than
20.000 voters. More than one Bingo can be authorized in localities exceeding 60.000 voters
(at a rate of one Bingo for each 60.000 electors: Decreto-Lei n.º 314/95 de 24 de Novembro,
Annex, Art. 3).
The same piece of legislation states, in Art. 4, that concessions to exploit Bingos may
only be awarded to public entities, collective persons of public utility and enterprises
of the tourist sector having a corporative legal personality.
Finally, Article 5 para 5 establishes a preference in future adjudications of concessions
to entities operating in the area of tourism.
7.
Media Gambling Services
Art 21 of the Code of Publicity749 forbid all kinds of advertising where games of luck and
chance are the essential part of the message. The provision makes an exception on
behalf of games promoted by the SCML.
Art. 161 of Decree-Law No. 422/89, states that the operation, by commercial entities, of
any kind of games similar to the ones mentioned in article 159 of the same Decree-Law
shall not be allowed, with the exception of quiz shows, entertainment contests or other
ones organised by newspapers, magazines, radio or television broadcasting stations
operators and the advertisement contests for promotion of goods and services. Such
contests may not cause any expenses to the player, other than the normal cost of postal
and telecommunication public services without any value added, or the regular price of the
newspaper or magazine with confirmed periodic publicity for more than one year, the
expansion of which is intended to be promoted, or the purchasing price of the commodities or
services intended to be publicized.
Call TV is considered a game of chance if the selection of the winner is done randomly. As
such, it requires an authorization. However, if the activity includes an element of skill, it will
not be considered a game of luck.
As a general rule, Call TV programs are based on premium rate phone calls that can be
activated at the request of the costumer. According to Endemol750, at the moment there is a
discussion with the supervising authorities, which tend to qualify a game named Puzzletime
as a game of luck (in consequence, no prize on money can be afforded). Endemol Portugal
749
750
CÓDIGO DA PUBLICIDADE Decreto-Lei n.º 330/90 de 23 de Outubro
(Com as alterações introduzidas pelos Decretos-Lei n.º 74/93, de 10 de Março,
n.º 6/95, de 17 de Janeiro e nº61/97 de 25 de Março, n.º275/98 de 9 de Setembro)
This information was provided to the authors of this Study on 18 July 2005, by Endemol
Nederland BV, an enterprise based in Aalsmeer in the Netherlands.
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III.
BARRIERS Panorama
PORTUGAL
proposed to put graphics on air during the program, showing the evolution of the number of
calls. The graphics should also include predefined levels that, when a line reaches the
predefined level, the person that votes will be put through to the studio. According to
Endemol, in this way the participation will be based on skill and but on luck.
8.
Sales Promotional Gambling
Article 159 of Decree-Law No. 422/89, defines «games similar to games of chance and
other forms of games» as «operations offered to the public, where the hope for gain lies
both in the player's chance and skills, or only in luck, the prizes being things with an
economic value».
Whenever any kind of «games similar to games of chance or other forms of games» achieve
such a public notoriousness that they may endanger morality or honesty, or where their
respective results are questionable, the Government member who is responsible for home
affairs shall take the necessary steps to protect the offended interests, by repressing or
restraining the operation and practice of such games. The «games similar to the games of
chance and other kinds of games» cannot develop any themes that are characteristic
of authorized games of chance, namely poker, fruit, bells, roulette, dice, bingo, lottery by
number or instantaneous lottery, football pools and lotto, nor replace with money or chips the
prizes granted.
Article 162 of Decree-Law No. 422/89, forbids the operation of vending machines where
the results depend exclusively (or mainly) on the player's skills, and which grant
prizes in money, chips or «things with economic value» - even if this value is small. An
exception to this rule is when the prize consists in the free prolongation of the use of the
machine due to the score obtained (amusement machines are ruled by specific legislation).
The vending machines intended to sell products, on which the amount spent must
correspond to the commercial value of those products, cannot by any means (with or without
an increase in price), grant prizes in money, chips or «things with an economic value».
The Consultant Council of the General Prosecutor of the Republic prepared a legal opinion751
according to which:
«The concept of «things with an economic value» in the sense of N° 1 of art. 159º of Decee-law
n.º 422/89, of 2 December – as drafted by Decree-law n.º 10/95, of 19 January – does not
include money, so in activities close to games of fortune and luck, such as the publicitary
contests to which n° 2 of the same article refers, it is forbidden to award prices in money (see
also n° 3 of art 161º of the cited Act)».
Sales promotional gaming must not collide with the rights of exclusivity of the SCML.
Thus, with respect to a promotional advertising game consisting in the organization of a
publicitary contest, by installing a system of forecasts of results of drawings of numbers, with
the aim of gaining prizes in money, the Consultant Council of the General Prosecutor of the
Republic it was stated:
«The promotional advertising game called «Game of History» is, according to its rules, adjusted
to promote in Portugal the British lottery called National Lottery, in breaking – if admitted that the
functioning of this game is identical to the terms of the Totoloto - of n.º 1 of article 23º of the
Law-decree n.º 84/85, of 28 of March. The mentioned publicitary contest, by installing a system
of forecasts of results of drawings of numbers with the aim of gaining prices in money (articles
751
Legal opinion by the Consultant Council of the general Prosecutor of the Republic Nº Convencional: PGRP00001036 Parecer: P000111998 Nº do Documento: PPA199907081100, 1999
«The game of history» Data do Jornal Oficial: 03-01-2000.
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III.
BARRIERS Panorama
PORTUGAL
1º, n.º 2, and 2º, n.º 3, of the Decree n.º 84/85), constitutes the organization and exploitation of
a mutual contest essentially identical to the Totoloto and has the characteristics of that game,
infringing n.º 1 of article 23º of the cited Law-decree and n.º 3 of the article 161º of Law- decree
n.º 422/89»
9.
Charity Gambling
Lotteries and similar gaming are exclusively attributed to the charity entity SCML
(Decree-law nº 322 of 1991, Santa Casa da Misericórdia de Lisboa752 - Statutes / Inner
Organization753).
Article 160 of Decree-Law No. 422/89 provides that the operation of games similar to the
games of chance depend on the authorisation of the member of the Government
responsible for home affairs, who will establish for each case the conditions deemed to be
suitable, as well as the respective supervising regime.
Whenever tickets are to be issued, authorisation shall be conditioned to the application
of the corresponding net profit for charity purposes or other purposes of public interest,
as well as to the prohibition of the respective operations to be carried out in places where
lottery tickets or mutual bet bulletins of the SCML are sold.
752
753
http://www.scml.pt/default.asp?site=scml&id=1&mnu=1 (homepage)
http://www.scml.pt/default.asp?site=eng
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