赌博成瘾与全球监管探讨

Content Team April 6, 2023

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赌博成瘾与全球监管探讨

问题赌博是一种瘾头,影响着各行各业的人,使原本的日常消遣变成一种有害的痴迷,瘫痪一个人的身心灵和财务状况。

问题赌博的明显特征是不论输赢,当事人都有无可抑制的赌博冲动。博彩成瘾是一种冲动控制障碍(ICD),使人极难控制想要下注的瘾头,尽管自己知道这可能会影响自己或周遭亲密的人,引发特定或各项严重后果。一个人一旦上瘾,将产生连锁反应,人际关系变得紧张,无法专心工作,甚至造成财务的极大困难。

深陷于赌博成瘾问题的受害者数量可观,反观博彩业,正朝着越发多样化且茁壮的方向发展。时至今日,有不计其数的博彩游戏供玩家选择,而需求更是如黑洞般深不见底。

在线博彩助长问题赌博趋势

聚焦到在线博彩,该行业历经大爆发且仍持续增长,这可能与全球新冠病毒疫情相关。截至2017年,在线博彩业的全球价值估计为500亿美元,在超过4000亿美元的行业中占了很大一部份。

博彩综合统计数据显示,全球26%的人口有参与博彩活动的习惯:约有16亿人定期下注,42亿人则每年至少会下注一次。数字如此可观,显现问题赌博的影响达到前所未有的新高。正因如此,身为地球村的一份子,我们必须指望立法机构、政策制定者制定法规,采行各种监管行动,以遏止问题赌博衍生的问题,并加强对行业的控管。

澳大利亚

澳大利亚是博彩人口最多的国家,高达80%的澳大利亚成年人参与不同形式的博彩活动,行业价值250亿美元。其中,有约20万名澳大利亚人被归类为患有 “严重” 的博彩成瘾问题,另外,估计患有问题赌博 “轻症” 者是前述数字的两倍。平均来看,澳大利亚每年博彩人均花费为1300美元,是第二大博彩国家新加坡的两倍。

在90年代之初,澳大利亚的博彩业经历了一次放松管制的大爆发,澳大利亚能接触到博彩的机会之多,超乎想象。诸如扑克、棋牌游戏、老虎机、扑克、刮刮乐、彩票、基诺(译注1)、在线或现场体育投注,随便一种类型,只要你说得出来,澳大利亚都能够满足你的需求。

然而,时序拉到当代大环境,澳大利亚的博彩业正在面临着不同形式的修法行动,而这一切全都是为了保护消费者免于赌博成瘾。

在当地最近一次监管行动中,赌场、博彩和酒类监管机构向墨尔本的皇冠赌场发布了命令,严格限制玩家能够游戏的时间。该机构强调,皇冠赌场若不遵守规定,将会受到10万美元的罚款。

另外,政府也将重点放在诱导博彩行为的广告,有关当局正在审查此类广告对受众能产生的实际效果。Tabcorp首席执行官Adam Rytenskild对此表示,这种做法无疑是极度有害的。

“博彩广告的泛滥已经根深蒂固。这对澳大利亚的社会大众不利,同样对博彩业的长期可持续性有负面影响。”

监管的反对声音

澳大利亚各体育联盟,如澳式足球联盟(Australian Football League, AFL)及国家橄榄球联赛(National Rugby League, NRL),皆对这些声明进行反击,担心如果对博彩相关广告监管成为阻碍,草根体育的资金将会受到影响,并恳请相关单位以平衡的方式考虑这些问题。然而,博彩相关实体不仅自赞助获利,更有额外的奖励涌入联赛,这使得这些体育联盟在评论监管议题时的立场令人难以信服。

对了了解澳大利亚人对博彩广告的看法,在针对代表性人口样本进行的一项公开调查中,绝大多数的参与者表示,博彩广告若不是为了诱导人们进行人生的第一次体育投注或博彩游戏,就是对原本就参与过博彩的受众产生切实影响。更重要的是,这种性质的广告在相当大比例上煽动了冲动投注,这是造成问题赌博如此严重的关键因素之一。

研究结果还显示,约有3/4的参与者认为能够博彩的机会太多,而且他们也都非常清楚地意识到赌博所带来的后果及风险。

禁止赌场使用信用卡支付

根据1982年的《赌场管制法》,该国严格禁止在实体赌场使用信用卡付款。目前已知至少一间势力极大的运营商在过去几年内允许玩家使用信用卡支付——昆士兰最大的赌场运营商星亿娱乐集团日前甫对信用卡支付相关的七项诉讼案认罪。

尽管法律应对方面看似取得了成效,这也引起了人们对各种类博彩游戏,以及使用信用卡作为博彩资金等议题的关注。使用任何明定具风险性的付款方式作为博彩资金来源,这是非常现实的问题,特别是后果严重到可能会信用卡透支。更深入探究,问题赌博还进一步加重了社会各层面的财务负担。正如澳大利亚银行业协会首席执行官Anna Bligh所言:

简单说来,这就是不适合信贷的产品,你可能在极短的时间内积累非常、非常可观的债务,而这项活动却没有办法为你带来任何好处。

这些问题并不仅仅存在于实体博彩,所以我们必须换个角度思考:信用卡怎么能被允许用在任何类型的博彩活动,特别是在线博彩?澳大利亚银行业已经向该国政府提出这个问题,并要求全面禁止在博彩活动中使用信用卡。

欲对立法进行这样的变更可能十分艰难,因为全面禁止只会对博彩业造成不必要的阻碍,然而,澳大利亚责任博彩公司自2021年8月以来便持续投入,企求建立解决方案。部份银行已经自主启动信用卡禁令,但如果没有执法部门的支持,要让整个行业转向金融保护做法,是不可能发生的。

欧洲

这项问题也已经引起欧洲大陆的注意。全世界投入最多博彩活动的前10个国家中,有6个来自欧洲,使得欧洲赌博金管成为金融治理不可或缺的一环。特别需要注意的是,欧盟的博彩监管相当松散且不符合国际潮流,因此在有效监管博彩方面的进展应尚有一段距离。

德国

虽说如此,但仍然有少数欧洲国家已经在禁止使用信用卡进行实体或在线博彩方面取得明显的进展。德国的监管成绩即相当亮眼,成功地禁止了所有形式的博彩活动接受Visa卡或万事达卡,拒绝以投注为目的进行贷款或提款的请求,甚至连PayPal都被限制。

德国全国上下用行动、用立法狠狠地打击了该行业,以至于许多在线博彩商被迫离开这个欧洲中心国家。正是这个因素,导致包含澳大利亚在内的其他国家迟迟无法做下决定,这也或许情有可原。

西班牙

西班牙也采取强制性的措施来规范该国的博彩业。该国已顺利通过立法,禁止使用信用卡,审慎考虑玩家的个人财务状况。该国也针对玩家实施各种不同的限制,如标记出输掉200欧元以上的玩家,并对所有玩家执行600欧元上限的限制。博彩业也将被禁止通过广告和品牌营销吸引弱势玩家,若违反规定,将开出100万欧元到5000万欧元不等的罚金,力求遏止这类行为。

论成效,这些法令的实施尚未实行到特定程度,要定义这样的做法成功与否仍尚早,但已经有部份运营商对此提出批评,他们将西班牙博彩业的增长率萎靡和可扩展性受限,归咎于这些新的立法措施。运营商发出抱怨,表示缺乏足够的时间对突如其来法规修正做出相应调整,同时也对这些法律是否真能有效保护受赌瘾困扰的玩家这点提出质疑。

英国

临近欧陆的英国也已经取得了相关进展,最终修订了相当严格、但可能执行不力的博彩立法。英国博彩委员会(UKGC)多年来坚持不懈地说服立法机构,目的便是为保护有赌博成瘾风险的人。更甚者,该国早在2020年就开始禁止对在线赌场和博彩公司使用信用卡支付。

2023年初,一则头条新闻震惊业界,UKGC对博彩公司威廉希尔裁罚破纪录的1920万英镑,同一时间,Kindred集团也被处以710万英镑的罚款。

这些执法行动席卷了各新闻媒体,使得UKGC对2005年博彩法案的调查曝了光,在调查收集到的数据随后也被公布于白皮书中;该白皮书将为立法的修订提供基础。

对此,英国的博彩业者提出了一个关键重点——公部门要与业者双向沟通。几乎可以肯定的是,世界各地的政府所通过的大部份立法都有询问过民间的意见,而UKGC的监管行动细节欠缺业界的咨询以及反馈,使得博彩运营商感到灰心,更引起各方关注。在向英国这样奉行判例法的国家,实体之间有失公允的沉默可能将使合规变得越来越困难。

缺乏合作可能是这些问题的根本,但如果运营商本身对法律内容、法律的运作方向以及司法机关对法律的解释毫无头绪,最后受害的仍会是那些具有赌博成瘾风险的人。

结论

或许,在全球层面上让监管机构和主要市场运营商之间进行健康的对话,将有利于有效监管博彩业的进程,同时防止漏洞并减轻致使问题赌博的相关业务风险。另一方面,这么做还能够消除立法进展及相关法规修订的障碍——这类障碍也同时是博彩业的阻碍,在大多数情况对博彩业的盈利产生巨大影响。

我们同时也应避免如西班牙和德国采行的过于严格的立法,以防行业因此而萎缩。鉴于博彩业仍然有极高的利润空间,对博彩活动的需求也仍非常健康,这为人们创造了数百万个就业机会,并对经济基础设施助益良多。在社会责任和保护与保障该行业之间建立平衡,是实现这一目标最有效且最安全的途径。

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