Government Support for Horse Racing Ireland: The Allocation & Distribution of Public Funds. Robert Butler* and Meadhbh Sherman*
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1 Government Support for Horse Racing Ireland: The Allocation & Distribution of Public Funds Robert Butler* and Meadhbh Sherman* * Department of Economics, University College Cork, Cork, Republic of Ireland. Tel: r.butler@ucc.ie Abstract This paper examines the government subsidisation of Horse Racing Ireland. It examines the contribution made by the Exchequer to Horse Racing Ireland to sustain the industry, and compares its funding to that granted to the Irish Sports Council. The paper then focuses on current funding in the racing industry and pays particular attention to the allocation of prize money within the industry on a per track basis and in terms of the largest individual winners. The findings question whether the goals of the Department of Arts, Sports and Tourism are being met by its funding of Horse Racing Ireland. 1. Introduction This paper will examine the use of public expenditure to fund the horse racing industry. It will pay particular attention to the current funding of Horse Racing Ireland (HRI) by the public exchequer and the subsidisation and distribution of prize money in the industry 1. Since the significant reduction in betting levies, the industry is no longer self-financing in terms of public finance. Evidence suggests that the substantial subsidisation of the industry is excessive when compared to the government s financial support of the Irish Sports Council (ISC). It is also apparent that the distribution of HRI prize money per track appears to favour race tracks that have weaker attendance figures. The largest HRI contributions to prize money per punter are given to some of the weakest supported race tracks. This paper will lastly examine the top prize winners in Ireland, given that over half of the money won at Irish racetracks comes from the public purse, and outlines where state sponsored prize money ends up. 1 According to Horse Racing Ireland s 2006 Fact Book horse racing is considered an industry in Ireland as apposed to a sport
2 2. Government Funding of Irish Sport The funding of Irish sport by the government has increased considerably since the late 1990s. Table 1 below outlines the increase in Vote 35 Item C, which accounts for sports funding in the governments annual budget, and compares the years 1998 and Table 1: Change in Expenditure on Vote 35 Item C in Budget from 1998 to * 2007** % Change Total Vote (Item C) 29, , % (201,473) 681% Capital Expenditure 19, , % (144,750) 760% Current Expenditure 10, , % (56,723) 538% Total Voted Expenditure 20,267,776 56,309, % Source: Revised Estimates for Public Expenditure 1999 and * 1998 figure converted to Euro amounts at fixed exchange rate of /IR 1 **Government Estimate As can be seen above, the government has devoted an ever increasing amount of public funding to sport. This could be expected given the increase in economic activity during the said period; however the total percentage increase in the sports vote of 928% is over three times larger than the increase in total expenditure over the same period. Taking into account that horse and greyhound racing are not included in the 1998, the figures in brackets excludes funding for both sports and produce revised estimates for Even excluding horse and greyhound racing the total percentage increase in the sports vote of 681%, is still nearly two and half times larger than the increase in total expenditure from Establishing the fact that the government has considerably boosted sports funding in the past ten years, Figure 1 illustrates where the funding was allocated to in the 2007 budget. As can be seen the largest slice of funding was granted to the Horse and Greyhound Fund. It is this element of the vote that this paper will now focus on paying particularly attention to the amount of money granted to the horse racing industry. 2 Figures in brackets exclude contribution made to horse and greyhound fund. Revised estimates are calculated so that a more accurate comparison can be made from with regards to changes in expenditure on Vote 35 Item C
3 Figure 1: Distribution of Vote 35 Item C in 2007 Budget Distribution of Vote 35 Item C % 8% 20% 7% 18% 1% 26% Sporting Bodies & Provision of Sports and Recreational Facilities Provision and Renovation of Swimming Pools Irish Sports Council Sports Campus Ireland Lansdowne Road Horse and Greyhound Racing Fund Support Sport in Disadvantaged Area Source: Government Estimates for Public Expenditure Horse Racing Ireland - Government Subsidisation The objective of the Department of Arts, Sports & Tourism with regards to sport is to formulate and oversee the implementation of policies for the promotion and development of sport and to encourage increased participation in sport and recreation, particularly by disadvantaged communities (Department of Arts, Sports & Tourism, 2007). Responsibility for meeting the goals set out in the Department s statement are given primarily to the ISC 3 and HRI 4. Figure 1 above illustrates funding granted to both the ISC and both HRI and the Irish greyhound authorities (Bord na gcon) in the 2007 budget. HRI receives four-fifths of the 26% of the budget allocated to the Horse and Greyhound governing bodies, and therefore is granted 20.8% of the entire budget of Vote 35 Item C. This is marginally bigger than the 20% allocated to the ISC. 3 Since it establishment by the government in 1999 the Irish Sports Council responsibilities include formulation and implementation of a High Performance Strategy for Sport, administration of the Grants Scheme for National Governing Bodies of Sport, co-ordination of National Sports Anti-Doping Programme and liaising with the Department of Tourism, Sport and Recreation, Minister for Arts, Sports & Tourism the Sports Council for Northern Ireland, the National Coaching and Training Centre (NCTC) and the Olympic Council of Ireland. 4 In 2001 the Department of Arts, Sports & Tourism took over from the Department of Agriculture with regards to the regulation and support of the horse racing industry in Ireland. The Department does not have direct control of the industry but delegates it to Horse Racing Ireland which was established under the Horse and Greyhound Racing Act,
4 Those in favour of the current subsidisation of HRI could argue that given the high costs that are associated with breeding, training and racing horses, racing authorities should received similar or even larger levels of funding than the ISC. However, the current situation where the ISC is allocated less funding on an annual basis than HRI appears rather strange given: The encompassing and inclusive nature of the ISC. The number of sporting bodies that fall under the remit of the ISC. The number of national and international bodies the ISC council liaises with. The objective of the Department of Arts, Sports and Tourism with regards to sport. Fahey and Delaney (2006:8) emphasize this anomaly and insist that the subsidisation of Irish horse racing appears to be both excessive in amount and is lacking in grounds for justification. Current funding for horse racing on its own exceeded the total budget of the Irish Sports Council and thus exceeded the current funding for all of the 60-plus sports bodies combined that it deals with (Fahey and Delaney 2006:8). Based on Indecon s (2004) estimates state support of the horse racing industry is the equivalent of approximately 7,100 for each of the 7,675 direct and indirect part-time and full-time staff. Table 2 below compares exchequer fund of the ISC and HRI since Table 2: Distribution of Public Expenditure: Horse and Greyhound Racing and ISC Total Exchequer Funding * Horse Racing Ireland ** Irish Sports Council HRI & ISC Ratio 1.82:1 1.74:1 1.59:1 1.37:1 1.08:1 Source: Government Estimates for Public Expenditure * Figures based on government estimates **Estimate based on the 80% of funding HRI receives from the overall horse and greyhound budget Although the Minister for Finance has attempted the remedy the situation since 2002, public funding of HRI still exceeded the more than sixty sports under the direction of the ISC by some 4 million in In the past those in favour of the large subsidisation given to Irish horse and greyhound racing argued that the industry was self financing due to the annual revenue the government received from the taxation of gambling. However, as Fahey and Delaney (2006:7) point out this revenue has been diminished due to a series of government policy changes beginning with the abolition of the IR 0.05 on-course betting levy and a reduction in the off-course betting levy from IR 0.10 to IR This was further reduced in 2002 to IR 0.02 and again in 2006 to IR They argue that this reduction in revenue generated by the racing industries coupled with the introduction of an Exchequer top-up financing facility, should tax revenue prove insufficient to fund the - 4 -
5 industry, has led to a situation where not only are the horse and greyhound industries insulated from competitive pressure but both are a net drain on the Exchequer. Table 3 shows the expenditure on the Horse and Greyhound Fund since 2001 and the contribution made by the off-course betting levy and top-up financing made by the exchequer. Table 3: Income & Expenditure on Horse & Greyhound Racing in Millions of Euro Fund Year Total Fund Expenditure Horse racing Greyhound racing Excise Income* n/a Exchequer Income** n/a % provided by Excise 75% 57% 67% 65% Source: Fahey and Delaney (2006) & the Irish Tax Revenue (2007) *Excise duty on off-course betting from previous year. **Balance provided by general exchequer Since the further reduction in the betting levy in 2002 from IR 0.05 to IR 0.02 the government has had to use additional funds to subsidies both industries. This additional funding will surely increase give the further reduction in the betting levy in As Fahey and Delaney (2006:7) point out the burden of taxation now placed on gambling has become increasingly insubstantial. While the exchequer revenue generated by Horse Racing Ireland & Bord na gcon from the excise on gambling has been reduced since 2003 public funds used to support both industries has steadily increased. Our focus now turns to the use and distribution of funding given to Horse Racing Ireland Horse Racing Ireland - Prize Money and Distribution of Prize Money per Track Horse Racing Ireland s 2006 Annual Report (2007:49) stated that the governing body contributed 30.6 million to prize money in This amounted to 55.6% of the total contribution to the prize money and was equal to 54.6% of the subsidy received by HRI. Table 4 outline the sources of prize money in the industry in 2004 and 2005, while Table 6 lists the monetary and percentage contribution made by HRI to the prize fund from 1995 to This will become clear once the 2007 Horse Racing Ireland Fact Book is published. 6 Horse Racing Ireland typically receives 80% of the budget given to both horse and greyhound racing authorities under Vote 35 Item C of the Budget
6 Table 4: Sources of Prize Money Sources of Prize Money Horse Racing Ireland (HRI) 58.1% 58.4% 55.6% Race Track Owners 27.0% 26.2% 29.0% Commercial 10.4% 10.9% 11.0% Northern Ireland Funding 1.1% 0.7% 3.8% European Breeders Fund 3.3% 3.8% 0.7% Source: Horse Racing Ireland (2007:49) It can be seen that the percentage contribution that HRI makes to prize money has fallen whilst race track owners, commercial sponsorship and the contribution made by funding from Northern Ireland have all marginally increased. Table 5: Nominal Contribution and Percentage Share of Prize Money from HRI Year Prize money ( 000s) Percentage contribution to total prize money ,733* 45.1% ,848* 42.8% ,052* 41.4% , % , % , % , % , % , % , % , % , % Source: Horse Racing Ireland ( ) * Figures converted to Euro amounts at fixed exchange rate of /IR 1 The nominal amount that HRI contributes to the prize funds at race meetings has grown steadily since Only in 2006 did the HRI contribution dip on any of the previous eight years. The percentage share that HRI contributes to prize money has grown year on year since 1997 and now accounts for almost 60% of prize money awarded at venues around Ireland. Table 6 breaks down the amount of funding each of the twenty seven races tracks in the Republic of Ireland received in
7 Table 6: HRI Contribution, % Share of Prize Money and Total Prize Fund Venue Total Attendance HRI Contribution to HRI % Contribution to Prize Money HRI Contribution per person to Ballinrobe 20, , % Bellewstown 22, , % Clonmel 20, , % Cork 58,516 1,650, % Curragh 142,186 4,511, % Fairyhouse 74,068 2,027, % Galway 235,426 1,242, % 5.28 Gowran Park 39,495 1,341, % Kilbeggan 52, , % 8.79 Killarney 29, , % Laytown 5,100 46, % 9.13 Leopardstown 180,963 4,078, % Limerick 78,188 1,420, % Listowel 95, , % 6.75 Naas 32,042 1,401, % Navan 48,869 1,546, % Punchestown 122,380 2,267, % Roscommon 31, , % Sligo 17, , % Thurles 21, , % Tipperary 26,215 1,085, % Tralee 25, , % Tramore 41, , % Wexford 25, , % Table 7 selects the top six courses under the heading per person contribution to prize money, Table 8 selects the top six venues with regards to average daily attendance and Table 9 focuses on the leading tracks in terms of the contribution HRI makes to prize money in nominal terms. Table 7: Top Six Venues Contribution per Person to Prize Money Venue Total Attendance HRI Contribution to Prize Money ( ) HRI % Contribution to Prize Money HRI Contribution per person to Naas 32,042 1,401, % Tipperary 26,215 1,085, % Thurles 21, , % Clonmel 20, , % Gowran Park 39,495 1,341, %
8 Table 7 suggests that HRI contributions to prize money per person tend to overcompensate some of the weaker attended tracks. Naas which was 13 th in terms of attendance figures in 2006 received per punter towards prize money. Interestingly, all three Tipperary tracks are next in terms of contributions to prize money per person even though all three were among the ten least attended Irish race tracks in 2006 Table 8: Top Six Venues Daily Attendance Venue Total Daily Attendance HRI Contribution to HRI % Contribution to Prize Money HRI Contribution per person to Galway 235,426 1,242, % 5.28 Leopardstown 180,963 4,078, % Curragh 142,186 4,511, % Punchestown 122,380 2,267, % Listowel 95, , % 6.75 Table 8 illustrates the top six venues with regard to daily attendance. Galway and Listowel, 1 st and 5 th in terms of attendances in 2006, and the only two venues to have more than 10,000 patrons attending on average last year, receive the lowest contribution per person to prize money from central authorities. Given that HRI can allocate prize money to any of the 24 tracks listed in Table 6, one would reasonable expect that tracks that have larger attendances per annum would be rewarded with larger prize money allocations. However, the evidence presented above suggests that those tracks with higher total attendances on a yearly basis do not have this rewarded by HRI in terms of their nominal contribution to prize money. In fact, quite the opposite occurs as the two best attended venues have the lowest contribution of HRI prize money per punter. Table 9: Top Six Venues HRI Contribution to Prize Money Venue Total Daily Attendance HRI Contribution to HRI % Contribution to Prize Money HRI Contribution per person to Prize Money Curragh 142,186 4,511, % Leopardstown 180,963 4,078, % Punchestown 122,380 2,267, % Fairyhouse 74,068 2,027, % Cork 58,516 1,650, % Table 9 suggest that the nominal amount of prize money seems to favour tracks close to large urban areas. Five of the six are in close proximity to Dublin. Having looked at the distribution of prize money from HRI per track and per person, Table 11 and 12 below outline who the leading prize money winners in 2006 & The leading flat racing winners are listed for the 2006 season, while the leading national hunt winners are listed for as its season starts roughly in early autumn and finishes the following summer
9 Table 10: Leading Prize Winners from Irish Flat Racing in 2006 Leading Flat Owners Prize money ( ) 1 Mrs. John Magnier 3,096,348 2 William Durkan 1,449,775 3 Micael Tabor 894,190 4 H.H. Aga Khan 863,175 5 Hamdan Al Maktoum 801,860 6 Mrs. J.S. Bolger 695,543 7 E.D. Kessly 500,000 8 Lady O'Reilly 499,880 9 Basil Brindley 383, Gary A. Tanaka 340, Derrick Smith 318, Mrs. N. O'Callaghan 302, Highclere Thoroughbred Racing XL 300, P. Garvey 277, Moyglare Stud Farm 275, Dr R Lambe 246, Joseph Joyce 244, Mrs. C. L. Weld 243, Saleh Al Homaizi/Imad Al Sagar 228, Sheikh Mohammed 203,010 Table 11: Leading Prize Winners from Irish National Hunt Racing in Leading National Hunt Owners Prize money ( ) 1 John P. McManus 1,111,148 2 Gigginstown House Stud 582,680 3 B.J. Craig 262,680 4 John J. Brennan 236,950 5 John P. Bowe 233,960 6 Mrs Claudia Jungo-Corpataux 220,480 7 J. Comerford 212,845 8 Greenstar Syndicate 190,710 9 S. Mulryan 184, Mount Temple Two Racing Syndicate 184, Mrs P. Sloan 174, Novices Syndicate 172, Slaneyville Syndicate 167, Dewdrop Racing Syndicate 159, Queens Prices Syndicate 155, Old Moss Farm 137, Mrs A. McCarthy 133, J.P. Dunne 130, Mrs Michael O'Dwyer 129, Seamus Ross 116,
10 Table 10 lists the leading prize winners from Irish flat racing in At least eight of the twenty names listed are not Irish nationals. Table 11 lists the top twenty prize winners from the Irish national hunt season. The information presented in tables 10 and 11 raise serious questions regarding the continuing subsidisation of HRI given the objective of the Department of Arts, Sports & Tourism, Remembering that the Departments aim is to formulate and oversee the implementation of policies for the promotion and development of sport and to encourage increased participation in sport and recreation, particularly by disadvantaged communities it is difficult if not impossible to establish how this objective is achieved by HRI annual redistribution of exchequer funding towards the more well-off sections of Irish society and foreign nationals. 5. Conclusion HRI receives a considerable amount of public revenue each year. The industry does unquestionably play an important role in the economic and social aspects of Irish life however so do many other sports, which fall under the remit of the ISC, and do not get a fraction of the government support that horse racing gets. More importantly, this paper has sought to highlight the fact that the distribution of funding by HRI is centred on current expenditure, particularly in the form of prize money. Expenditure on capital project would fit better with the goals of the Department of Arts, Sports & Tourism. This paper has also sought to highlight the conflicting reality of the Department of Arts, Sports and Tourism s objective and HRI actions. The objective of promoting of sport and recreation, particularly in disadvantaged communities is not being met by HRI, instead the racing authorities are redistributing public monies towards well-off individuals and wealthy foreign nationals. Either the Department s objectives need to be clarified or the subsidisation of HRI needs to be considerable reduced
11 References Department of Arts, Sports and Tourism (2007) Statement of Strategy, Department of Arts, Sports and Tourism, Dublin. Department of Finance ( ) Revised Estimates for Public Services, Department of Finance, Dublin. Fahey, T. & Delaney, L. (2006) State Financial Support for Horse Racing in Ireland, ESRI, Dublin. Horse Racing Ireland, ( ) Fact Book 2004, 2005, Kill, Co. Kildare: Horse Racing Ireland. Indecon, (2004) An Assessment of the Economic Contribution of the Thoroughbred Breeding and Horse Racing Industry in Ireland. A Final Report for the Irish Thoroughbred Breeders Association, European Breeders Fund and Horse Racing Ireland, Typescript, July Irish Tax Revenue, (2005) Statistical Report 2005 on Excise, Revenue Commissioners, Dublin
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