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Kenosha County Sheriff David Zoerner, left (background) addresses Youth in Governance member Michael Babu, (middle foreground) who is on the J…
The development of a project the size of the proposed casino, hotel and entertainment complex in Kenosha would be expected to also generate additional crime.
Zoerner
Just how much crime would be likely to increase remains to be seen, said Kenosha County Sheriff David Zoerner.
Zoerner discussed what he has learned from other communities with casinos during a meeting of the Kenosha County Board’s Judiciary and Law Committee Wednesday night.
“What kind of changes are we going to see? Of course, we’re going to see an increase in crime,” said Zoerner, who indicated more cases of thefts, drugs and the potential for sex trafficking are among those which may escalate.
According to the sheriff, law enforcement agencies in Illinois and Indiana have indicated they have seen increases in “petty thefts,” drug crimes and prostitution.
“At what level, I don’t have that answer. We are at no loss for drug crimes in this community,” he said. Crimes associated with gambling and gambling addiction are also expected to increase, he said.
The committee discussion comes ahead of the County Board’s Jan. 16 vote on an intergovernmental agreement that includes $82 million in proposed revenue sharing from “net win” proceeds and other contributions over two decades.
The net win is the difference between the total amount wagered on gaming and the amounts the casino would pay out in prizes. The county is projected to receive more than $33 million the first 10 years, or 1% of the net win revenue, tribal sales taxes and annual payments to promote responsible gaming and charitable donations. The next 10 years, the county’s estimated revenue share would grow to more than $48.7 million, which includes 1.33 % of the net win and all other contractual payments in the agreement.
Earlier this week, the City Council voted to approve its own intergovernmental agreement with the Menominee Nation and Hard Rock International, which intends to build the $360 million casino in Kenosha on 60 acres just west of Interstate 94. Under both the city and county agreements, the Menominee would apply to the U.S. Department of the Interior to place the lands in federal trust for gaming purposes, effectively taking them out of taxing jurisdictions.
Payments in the intergovernmental agreements are intended to help offset projected losses from tax revenues and costs for projected future increases to law enforcement and social services as a result of the casino. The County Board postponed voting on the agreement last month with supervisors calling for more time to vet it.
During the committee discussion, Supervisor Laura Belsky wanted to know about the increase in auto thefts, and whether communities with casinos experienced more based on the data from license plate readers and facial recognition. Zoerner said auto thefts have “spiked everywhere,” along with joyriding.
Zoerner said the area would definitely see more traffic because of the venue.
“But along with that comes, hopefully, vast resources from the casino as well,” he said.

According to an analysis presented by county finance services in December, the annual economic cost of a casino to the county was projected at $2.6 million to $2.8 million. The costs include the loss of tax revenue and about a $2 million split between public safety and human services.
The analysis projected the sheriff’s department would need to increase staff, adding four deputies, two detectives and a K9 bomb squad special unit, including handler and police dog. The department also projected the need for seven additional squad cars at $85,000 apiece.
Supervisor Mark Nordigian wondered whether Zoerner believed the amount asked for in the intergovernmental agreement negotiations last summer were still adequate.
“Do I think we have enough? You’ve been with me through one budget process. You know, I don’t think we ever have enough,” Zoerner said. “Honestly, if you gave us six deputies and squads, you can keep them busy all day long … while driving down Highway 50.”
Supervisor Jeff Wamboldt, a retired Kenosha police officer, wanted to know what other agencies have experienced involving human trafficking.
“It’s definitely a concern. There’s going to be a hotel attached to this, so you all understand how that works. Human trafficking is getting more exposure,” Zoerner said. “It’s the largest-growing crime worldwide. It’s an unbelievable industry, billions of dollars. So, I would be remiss to pretend for one minute that’s not real or that’s not something to be concerned with.”
The Menominee would own the estimated $360 million Kenosha casino and its related facilities, and Hard Rock would serve as developer and manag…
Supervisor John Franco wondered about the likelihood that the Menominee-Hard Rock casino would actually be employing its own tribal police to serve the complex and grounds. Once the lands are placed in trust in accordance with the intergovernmental agreement, the property belongs to the Menominee, a recognized sovereign nation, governed by tribal laws and enforcement.
Zoerner said while it remains to be seen how much or whether tribal law enforcement would be involved in policing the casino, he said “they’re not going to have a jail.” According to the city’s agreement with the Menominee, a substation for Kenosha police and public safety is expected to be established next to the casino.
Committee Chair Brian Bashaw asked about the extent to which the agreement covered the county’s projected public safety needs.
Chief Deputy Justin Miller said he was asked to come up with what were “minimum needs” for the department. Unlike the Hard Rock casino in Sacramento – which the proposed casino had been compared with in previous meetings, Kenosha’s law enforcement needs are dwarfed. Miller said Sacramento’s law enforcement is five to six times the size of the local sheriff’s department. Sacramento, California’s capital, has more than 525,000 people.
“I built in everything for if everything happened … the (casino), the hotel. That’s what we forecasted if everything came to fruition,” he said.
Miller said the department’s negotiated asks were also factored with “no tribal police.”
“The tribal police was never discussed,” Miller said. “I know that’s possible, but it’s not likely.”
Americans are spending hundreds of billions of dollars every year gambling—online, in person, and on lottery tickets.
About three years after the worst of the COVID-19 pandemic, the spending growth for casino gambling continues to outpace the rise in lottery ticket buying. Casino gambling wins a lopsided amount of players’ money: $417 billion in the first three quarters of 2023. That’s more than triple the $117 billion spent on lotteries during the same time, according to Bureau of Economic Analysis spending data.
Some top reasons why people spend so much more on casino gambling are evident in data from an American Gaming Association tracker that projects commercial gaming revenues will break records for the third year in a row.
People are getting out to casinos to bet more money alongside other gamblers on slot machines, poker, and other games. What’s more, sports fans have embraced betting outlets promoted in inescapable TV ads featuring big-name actors and athletes. Spending on sports betting continued to grow at a record-breaking pace in 2023 as more states legalized it after the U.S. Supreme Court struck down a ban in 2018. By late 2023, people could bet on sports online and/or at retail locations in about three-quarters of all states. Internet gaming also took off in 2023 in the states where the practice is legal.
Part of the overall growth is attributable to the rise in these new forms of gambling, including casino-operated mobile gambling applications and lottery-based electronic skill games that resemble slot machines. Altogether, these trends hint at deeper insights into what drives gambling behaviors, and casino gaming and the lottery have different qualities that help explain why playing the lotto doesn’t capture nearly as much of gamblers’ money.
ATS.io used Bureau of Economic Analysis spending data to capture the differences in gambling patterns among American casino-goers and lottery participants.

High inflation in recent years through 2023 hasn’t stopped two decades of fairly steady growth in spending on lottery and casino gambling, except for a sharp dip for casinos at the height of the pandemic restrictions. But casino gambling spending growth is more robust. American spending on gambling at casinos has grown 61% since 2000—adjusted for inflation—compared to 42% growth in lottery spending.
The fact that Americans favor casino gaming over the lottery when it comes to their gambling habits may not be surprising considering that casinos typically offer a higher return to player, otherwise known as RTP. States that allow lotteries pay out an average of about 65% of gross revenue in prize money, while returns of 80% to 90% or more are not unusual for casino games.
The odds of winning casino games vary so much that it is difficult to make a comparison with the chances of winning the lottery—about 1 in 302.6 million for the Mega Millions‘ top prize, for instance. However, the chances of winning the jackpot on the popular Megabucks slot machines, which often make the news when they periodically create new millionaires, are oft-discussed in gaming circles, with estimates as high as 1 in 50 million.
Gambling gains come as Americans’ attitudes have shifted, with a record of nearly 70% deeming it a “morally acceptable” activity in a 2018 Gallup poll. However, underlying factors that are less obvious may contribute to higher spending on casino gambling.
Casinos are meticulously designed to keep people playing, with maximum comfort for guests and clear views of other games to make their way to next. Of course, the incentive of receiving free drinks helps keep some people betting. There’s also some indication among gambling researchers that game machine lights and celebratory sounds, along with newer technologies such as surround sound and small vibrations to the player’s chair, draw people into an immersive world that could distract them from risky behavior.
What’s more, compared with the lottery where a player may be more likely to buy a set number of Powerball or scratch-off tickets and be done until the next attempt at a big jackpot, online betting platforms are easily accessible, engross players, and make spending more money simple.
Whether on a Las Vegas gaming floor or through a smartphone, placing a casino bet can also give players a sense of control, requiring their input, rather than leaving the outcome up to the luck of the lottery draw.
Story editing by Rose Shilling and Ashleigh Graf. Copy editing by Tim Bruns.
This story originally appeared on ATS.io and was produced and distributed in partnership with Stacker Studio.

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Kenosha County Sheriff David Zoerner, left (background) addresses Youth in Governance member Michael Babu, (middle foreground) who is on the Judiciary and Law Committee of the County Board during a discussion about the effect of a proposed casino on local police Wednesday night. The board is expected to vote on the county’s intergovernmental agreement for the casino Jan. 16.
The Menominee would own the estimated $360 million Kenosha casino and its related facilities, and Hard Rock would serve as developer and manager of the project proposed just west of Interstate 94 on about 60 acres of land.
Zoerner
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