When Congress has acted to regulate gambling in the past, there often have been unintended consequences. Thus, for example, when Congress passed the Indian Gaming Regulatory Act (the “IGRA”), it “meant to spur economic opportunity and growth on poverty-stricken and remote Indian reservations . . . The aim of IGRA was Indian empowerment,  . . . [and] many members believed [their 1988 congressional vote] was authorizing bingo parlors on remote tribal lands.” However, “[m]any of those who were meant to benefit from IGRA have not,  . . .

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