Massachusetts lawmakers have voted to authorise historical horse racing (HHR) machines at the state’s remaining racetracks, embedding the measure into a $561 million economic development bill. The House approved the proposal on July 8, sending it to the Senate for further debate.
How HHR machines work
At first glance, HHR terminals look and feel like slot machines, with spinning reels, themed graphics, and rapid play. But the difference lies in their mechanics. Each outcome is linked to the results of a previously run horse race, randomly pulled from decades of archived contests.
Wagers are combined pari-mutuel style. Players bet against one another rather than the house. This essential information is what supporters use to categorise HHR as a form of racing wagering rather than casino gaming.
Additionally, proponents argue that these machines could generate hundreds of millions of new investment, create employment, and breathe new life into dormant racetrack properties like Suffolk Downs and Raynham Park, according to media reports.
A Spectrum Gaming Group study projects roughly $255 million in combined capital investment, alongside significant construction and employment gains.
Horse racing has deep roots in Massachusetts, dating back to the colonial era. Suffolk Downs, which operated from 1935 to 2019, was once the state’s premier Thoroughbred track. Today, only Plainridge Park remains active for harness racing, while Suffolk Downs and Raynham Park now host simulcast wagering.
Supporters’ perspective
Massachusetts ’ Expanded Gaming Act of 2011 governs the state’s gambling industry and it oversees the Massachusetts Gaming Commission (MGC). According to the law, up to three resort casinos, one slots-only parlour, and sports betting are allowed, all subject to strict licencing, tax, and responsible gaming rules.
Those in favour argue that HHR machines provide a lifeline to the struggling racing sector while generating new revenue streams. Proceeds would help strengthen a strained health fund.
Casino and tribal opposition
But there has been pushback by three casinos in the state: Encore Boston Harbour, MGM Springfield, and Plainridge Park. They insist that these machines are “slots in everything but name.” They also argue that the HHR evades the oversight, tax rates, and licencing costs casinos must shoulder, weakening exclusivity agreements worth millions.
In addition, the Mashpee Wampanoag tribe has raised their grievances and warns that the extension could violate existing agreements.
In 2012, the tribe entered into a Tribal-State Compact to operate a casino in Taunton, but the deal created legal and political hurdles. The agreement stipulates gaming rights, revenue sharing, and regulatory oversight. Meanwhile, another related agreement with the City of Taunton sets forth financial contributions and community mitigation measures. According to the Boston Globe, the debate could even rekindle gambling ambitions at Suffolk Downs.
National context
HHR has emerged as one of the fastest-growing gambling verticals in the U.S., generating billions in states like Kentucky and Virginia. Its appeal lies in exploiting the legal gap between racing and casino law, offering racing advocates in other states a model to replicate.
But HHR’s have faced multiple legal challenges in the past. Courts and regulators remain divided over whether these machines constitute pari-mutuel wagering or simply slot machines dressed differently. For Kentucky, it defended the machines’ legality after years of litigation, while California regulators confiscated them at Santa Anita Park. Other states have also continued to wrestle with tribal compacts and constitutional definitions.
The MGC's May 2026 revenue report highlights $105.88M in Gross Gaming Revenue generated at Mass. casinos and $70.59M in Sports Wagering Revenue generated among the state's sports wagering licensees. pic.twitter.com/wDlxg1H3U6
— Mass Gaming Commission (@MassGamingComm) June 24, 2026
What’s next
Massachusetts now stands as a test case: a mature casino market weighing whether exclusivity deals from the past decade can withstand the racing industry’s favoured loophole. The Senate is expected to be a tougher battleground, with the issue likely headed to a House-Senate conference committee.
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