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For a Dollar and a Dream
For a Dollar and a Dream
State Lotteries in Modern America
JONATHAN D. COHEN
Oxford University Press is a department of the University of Oxford. It furthers the
University’s objective of excellence in research, scholarship, and education by publishing
worldwide. Oxford is a registered trade mark of Oxford University Press in the UK and
certain other countries.
All rights reserved. No part of this publication may be reproduced, stored in a retrieval
system, or transmitted, in any form or by any means, without the prior permission in
writing of Oxford University Press, or as expressly permitted by law, by license, or under
terms agreed with the appropriate reproduction rights organization. Inquiries concerning
reproduction outside the scope of the above should be sent to the Rights Department,
Oxford University Press, at the address above.
You must not circulate this work in any other form and you must impose this same
condition on any acquirer.
ISBN 978–0–19–760488–5
eISBN 978–0–19–760490–8
DOI: 10.1093/oso/9780197604885.001.0001
Contents
Acknowledgments
Introduction
1. An Astronomical Source of Income: The Return of State Lotteries
2. Not Luck, but the Work of God: Merit and Miracles in the 1970s
3. Rivers of Gold: The Lottery Industry and the Tax Revolt
4. Somebody’s Gotta Win, Might as Well Be Me: Lottomania in the
1980s
5. This Could Be Your Ticket Out: The Paradox of Lottery
Advertising
6. Selling Hope: Lottery Politics in the South
Conclusion: Jackpot
Notes
Index
To my parents
Acknowledgments
LEO MCCORD HAS played the Illinois Lottery every day for almost 50
years. A lifelong resident of Chicago, McCord is 70 years old, black,
and rents a home on the West Side, not far from where he grew up.
Since 2013, he has worked for the Chicago public school system as a
security officer and an aide for students with disabilities, a position
he took after two decades holding various jobs for the city
government. When the lottery started in 1974, he was working as a
taxi driver and would spend about $5 a day on tickets: “I saw it as
an investment I could afford,” he remembered. But as the national
and local economy soured, he lost his job and fell on hard times. In
the 1980s, he did odds jobs, shoveled walks, and collected cans—
whatever he could to make a legal buck. As his desperation
increased and his future prospects dwindled, his relationship to the
lottery changed. Tickets became more than a side investment. He
began to see a jackpot as his last, best, and only chance to change
his situation. The size of his investment shifted accordingly. McCord
would spend however much money he could put together on tickets,
as much as $15 a day. Even after years of losses, he kept dreaming.
“Not a day went by I didn’t think of what it would be like living the
life of a rich man, planning what I would do if my six numbers came
up in the Lotto and I became one of the instant millionaires,” he told
the Chicago Tribune in 1986. Between the daily fantasies and the
advertisements promising a quick jackpot that were ubiquitous in his
poor, predominantly African American neighborhood, a lottery win
seemed like a sure thing. “The worst part is,” he noted, “you start
believing a poor man is smart to take a chance.”
McCord still believes he has a chance. These days, he mostly plays
daily numbers and rollover jackpot games, with an occasional
scratch ticket. He prays every day for a windfall, and he plays some
special numbers: 245, which came to him in a dream one night, and
1007, part of his payroll code with the city, which “hasn’t done
anything yet” but he thinks is due to hit eventually. Around 2007, he
won $100,000, most of which he used to fix up his mother’s house
and buy himself a new car. However, even with this payout and a
few smaller hits over the years, he knows that he has lost more than
he has won. By his own admission, he spends more than he should
on tickets, though he is always sure to take care of necessities first.
He plays because he still dreams of what he calls “the big one,” not
any specific amount, just enough to leave him set for life, and then
some. The bigger the better. The way he sees it, some people spend
money on movie tickets or alcohol. He buys lottery tickets to try to
fulfill his dream of instant riches. So he plays. And he prays. And he
waits for the jackpot he has been chasing for almost 50 years, which
he is sure will arrive someday soon.1
Every week, 33 million Americans like Leo McCord spend a few
dollars on the dream of a life-changing lottery jackpot. At
convenience stores, gas stations, and supermarkets in nearly every
corner of the country, gamblers buy their favorite scratch tickets, fill
out slips for the daily numbers, or take a chance on a rollover
jackpot game. Roughly half of American adults play the lottery at
least once a year, and one in four do so at least once a month,
holding out hope that they will overcome the odds standing between
them and a massive windfall. Americans spend more on lottery
tickets every year than on cigarettes, coffee, or smartphones, and
they spend more on lottery tickets annually than on video streaming
services, concert tickets, books, and movie tickets combined. The
state lottery era began in 1964 with one state and $5.7 million in
sales. In 2020, sales from 45 states totaled $91.4 billion. The United
States has become a jackpot nation.2
Lottery tickets are popular because many Americans judge the
long odds of a jackpot to be their best chance at a new life.
Gambling has been a prevalent pastime in the United States for
centuries, and luck has always held deep cultural resonance in a
society that prided itself on its work ethic.3 For people like Leo
McCord, the lottery is more than just a game. It represents the
likeliest path to financial stability, not to mention wealth. In 2006,
almost 40 percent of households with incomes under $25,000
believed their best means of accumulating several hundred thousand
dollars in their lifetime was through the lottery. A 2010 poll asked
respondents to name the most likely way for them to get rich; 20
percent said by starting their own business and 19 percent said by
securing a high-paying job. However, almost as many respondents
(15 percent) chose chance: winning the lottery or receiving an
inheritance.4 During periods of economic decline, casino and
horserace gambling revenues typically drop. Meanwhile, lottery sales
increase as incomes fall, unemployment grows, and poverty rates
rise.5 More than any other form of gambling, players see the lottery
as an alternative means of upward mobility.
Economic circumstances of the late twentieth century played a
crucial role in encouraging Americans to turn to the long odds of
lottery tickets. Over the last half-century, rates of relative
intergenerational mobility have stagnated. The demise of high-
paying manufacturing jobs, the rise of a low-wage service sector,
and the concentration of high-growth industries in certain parts of
the country have shut many Americans out of paths to greater
prosperity. As a larger share of gains flew into the hands of the
already rich, children born later in the century were less likely to
earn more than their parents. Meanwhile, many Americans face
acute financial insecurity: as of 2020, 36 percent of adults—including
over half of black and Latino adults—reported being unable to cover
an unexpected $400 expense.6 Educational achievement and hard
work provide no guarantee of success as the promise of economic
opportunity proves increasingly elusive. As more financial risk was
heaped onto American families in the name of personal
responsibility, many of those same families embraced the risk
inherent in the lottery to try to get ahead. “We sell hope in this
depressed economy,” an Ohio Lottery executive explained in 1975.
“We don’t sell lottery tickets. We sell dreams.”7
For five decades, scholars have studied who exactly plays the
lottery. Their research has proven that lotteries are regressive—
meaning they take relatively more from those with lower incomes.
Because Americans from almost every walk of life at least
occasionally buy tickets, participation rates generally vary little along
lines of income, race, and education. In fact, some studies find that,
due to a lack of disposable income, the very poor may have the
lowest rates of lottery play. Crucially, however, the frequency of play
and the amount bet by those who do gamble is particularly high
among lower-income, nonwhite, and less-educated Americans.
Studies find that the top 10 percent of players account for half of
total lottery sales and that the top 20 percent account for as much
as 70 to 80 percent. Relative to the overall population, this group is
disproportionately black or Latino, male, lacking a high school
diploma, and below the twentieth income percentile. The amount
spent on tickets—both in raw dollars and as a percentage of
household income—declines as incomes rise. Furthermore, every
single lottery game is regressive, especially daily numbers games
and scratch tickets.8 When pressed about these statistics, lottery
officials and gaming industry executives utilize numerous statistical
sleights of hand to obscure their industry’s reliance on poor bettors.
The evidence, however, is overwhelming. Lotteries represent a
source of state revenue that draw heavily from those who can least
afford to gamble.
FIG I.1
Gamblers are not the only ones who have been captivated by lottery
dreams. Like bettors wagering on a windfall, states legalized lotteries
hoping to hit a jackpot of their own. Between 1963 and 2018, voters
and policymakers in 45 states enacted lotteries because they
believed legalized gambling was a panacea. All government policy
entails a measure of risk, its enactment driven by an uncertain
promise of how exactly it will improve people’s lives. The politics of
state lotteries made clear just how much of a gamble policymaking
can be. Lotteries were seen as budgetary miracles, the chance for
states to make revenue appear seemingly out of thin air, much the
same way a lottery ticket might be worthless one moment and worth
millions the next.
Lotteries appeared to present voters and policymakers with a
painless solution to pressing budgetary problems. Specifically,
lotteries offered states a seemingly simple way to fund public
services without new taxes to pay for them. “Lotteries have proven
to be catnip for elected officials who fear taxation,” wrote Richard
Leone, a member of a 1990s federal gambling commission. “Like
gamblers themselves,” states “hope to get lucky and put off tough
choices about taxes and spending by chasing increased gambling
revenues.” Eager for a tax-free bonanza, supporters thought states
could avoid traditional, established solutions to budget issues by
taking a chance on gambling. Even as evidence emerged that
lotteries could provide only a small percentage of state revenue, and
even as data mounted about their regressivity, states kept passing
them, kept advertising, and kept adding new games, desperate for
their long-shot gamble to pay off. “For them and for us,” Leone
concluded, “it’s a sucker’s bet.”13
Voters and legislators across the country bet on betting because of
the economic and political circumstances facing state governments
in the late twentieth century. Many of the same factors that have
bred public fervor for lottery tickets also increased states’ need for
new revenue. In particular, lottery legalization was the result of
states’ attempts to preserve the mid-century social compact as the
foundations of postwar prosperity crumbled.
The period from the 1930s through the mid-1970s was, in
historian Jefferson Cowie’s words, a “great exception,” an era of
government commitment to collective economic rights sandwiched
between periods of inequality, polarization, and political deference to
business.14 In this unique historical moment, American government
sought to provide economic opportunity and security to white
working- and middle-class men—and, to a significantly lesser extent,
African American men—through major public investments, especially
in universities, housing, infrastructure, and social services. Crucially,
government provided these services while generally keeping taxes
low.15 This arrangement was possible thanks to a unique
convergence of American overseas influence and, relative to today,
the even distribution of the economic gains.
Fractures in this era of economic exceptionalism began to emerge
in the 1960s, leading to the first wave of lottery legalization. Due to
a variety of factors, including population growth, shifting economic
conditions overseas, and voters’ ever-expanding appetite for new
services, it was becoming increasingly difficult for state governments
to keep their budgets balanced. By the late 1960s, states, especially
northeastern states that had larger social safety nets and that put
more into the federal pot than they received in return, needed to
increase taxes to prevent massive cutbacks.
Voters, however, rebuffed the possibility of either reduced state
spending or new taxes. Faced at long last with the prospect of
having to shell out more for the services they demanded, legislators
and taxpayers turned to government-run gambling. The first lottery
was enacted in tax-averse New Hampshire in 1964, and lotteries
swept across the Northeast and parts of the Rust Belt between the
late 1960s and the mid-1970s. For gambling proponents, these were
not merely extra sources of revenue. Lotteries were seen as silver
bullets. Supporters believed a lottery would singlehandedly prevent a
tax increase and allow for the continued expansion of state services.
Though New Hampshire’s sweepstakes benefited education, most
states channeled profits directly into the general fund on the
assumption that a lottery could subsidize a wide array of services. A
“lottery operated by the state could raise enough revenue to permit
reducing taxes,” a West Belmar, New Jersey, resident wrote to his
local newspaper in 1964. “New Jersey could have larger and better
schools, better hospitals, and provide senior housing and medical
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visit, was destroyed by fire, and the debonair ladies, prancing steeds
and all went up in one great holocaust.
The new house that rose over the ashes was aptly called
Whitehall. It was all white, inside and out, broad, dead white walls,
grand balconies all around the mansion dead white; white steps led
to the lawn, and the trees surrounding had their trunks whitewashed
as high as could be reached by a long pole and a brush. All the old
portraits and some awful prints (it was long before the chromo era)
were fished out of closets and other hiding places and hung about on
the white walls. One old man with a tremendously long neck and a
stiff black stock to help hold up his head, and a fierce look, had a
pair of eyes that looked like great daubs of ink. His portrait decorated
the parlor. I was warned not to handle the gilt-edged books and little
trinkets on the marble-top center-table, “for your Cousin Christopher
will see you; notice, whichever way you turn his eyes will follow you.”
I was mortally afraid of that old spook till little black Comfort told me,
“Laws! if dem eyes could hurt we’d all be’n daid in dis house.”
At “The Oaks,” Dr. Patrick’s plantation, the wall paper illustrated
scenes from China, in colors not gorgeous, like the last mentioned,
neither was the house so pretentious. There was no broad, high
ceilinged hall to ornament with startling figures that seemed to jump
at you. The orderly processions of pigtailed Chinamen in sepia tints
could not by any possibility get on one’s nerves. Whole processions
wended their way to impossible temples, wedding processions,
palanquins, and all that; funeral processions dwindled away to a
mere point in the distance, all becomingly solemn, until some of the
irrepressible Patrick children, with black pencil, or charcoal, or ink,
put pipes into all the mouths and clouds of smoke therefrom spotted
the landscape. Moral suasion was the discipline of the Patrick
children, so that freak was not probably followed by after-claps, but
the Chinese were promptly marched off, and the inevitable white
walls were the result.
Family portraits came forth to brighten the room. One notable one
that superseded the Chinese wall paper was a full-length portrait of
Gov. Poindexter’s (everybody knows “Old Poins” was the first
Governor of the State of Mississippi) first wife, who was a sister of
Mrs. Patrick. She was a vision of beauty, in full evening dress.
Facing her was the glum, “sandy complected” Governor, not one bit
fascinated by the sight of his wife’s smiling face.
The fashionable portrait painter of the time was Moïse; it was he
who painted the author’s portrait shortly after her marriage. He was a
dashing, improvident genius, and many of his portraits were
executed to cancel debts. At one time he designed and had made for
my husband, in settlement for a loan, a handsome silver lidded bowl
with alcohol lamp beneath. It was known as a pousse café and was
used to serve hot punch to after-dinner parties. I am glad to say it
has survived all the family vicissitudes, and is an honored heirloom,
in company with a repoussé silver pitcher, which we won as a prize
for cattle at the Louisiana State Fair, described in a later chapter.
At John C. Miller’s place the house was only one story, but it
spread over what seemed to be a half acre of land. A square hall,
which was a favorite lounging place for everybody, had wall paper
delineating scenes from India. Women walked toward the Ganges
river, smilingly tripping along with huge water jars on their shoulders,
in full view of another woman descending the steps of a temple, with
a naked baby, poised aloft, to be thrown into the sacred Ganges. A
crocodile ruffled the blue (very blue) waters, with jaws distended,
ready to complete the sacrifice. That sacred river seemed to course
all around the hall, for on another side were a number of bathers,
who appeared to be utterly oblivious of their vicinity to the mother
and babe, not to mention the awful crocodile.
The culmination of landscape wall paper must have been reached
in the Minor plantation dwelling in Ascension parish. Mrs. Minor had
received this plantation as a legacy, and she was so loyal to the
donor that the entreaties of her children to “cover that wall” did not
prevail. It was after that style of mural decoration was of the past,
that I visited the Minors. The hall was broad and long, adorned with
real jungle scenes from India. A great tiger jumped out of dense
thickets toward savages, who were fleeing in terror. Tall trees
reached to the ceiling, with gaudily striped boa constrictors wound
around their trunks; hissing snakes peered out of jungles; birds of
gay plumage, paroquets, parrots, peacocks everywhere, some way
up, almost out of sight in the greenery; monkeys swung from limb to
limb; ourang-outangs, and lots of almost naked, dark-skinned natives
wandered about. To cap the climax, right close to the steps one had
to mount to the story above was a lair of ferocious lions!
I spent hours studying that astonishing wall paper, and I
applauded Mrs. Minor’s decision, “The old man put it there; it shall
stay; he liked it, so do I.” It was in 1849 I made that never-to-be-
forgotten trip to jungle land. The house may still be there; I don’t
know; but I warrant that decorated hall has been “done over,”
especially if little children ever came to invade the premises. Upon
the departure of landscape wall paper, the pendulum swung to
depressing simplicity of dead white walls or else “pillared and
paneled,” which is scarcely one degree better.
Old portraits and any kind of inartistic picture or print were brought
forth to gratify the eye unaccustomed to such monotony. Only a few
years ago I asked: “What became of that military epauletted portrait
of old Major Messiah that always hung in your mother’s hall when we
were children?” “Oh, it was hanging twenty or more years ago in the
office of a hardware concern down town. Don’t know where it is
now.”
After the war, inquiring for a lot of portraits of various degrees of
merit and demerit that disappeared when the Yankees left, we heard
that some were in negro cabins in West Feliciana. So they come and
are appreciated, those images of loved ones. So they often go, and
are despised by those who follow us, and who, perchance, never
knew the original. Now the questions arise, will landscape wall
papers really return? And in their pristine splendor? Surely the scope
in brilliancy and variety could not be excelled. The limit was reached
almost seventy years ago, and naturally (I was a child then) comes
as vividly to my mind as the counterfeit face of my ancestor with
eyes following me all around the room. The tigers and ourang-
outangs, even the den of lions and the crocodile of the Ganges,
never made my little soul quake like the searching eyes of “my
Cousin Christopher.”
XI
THOUGHTS OF OLD
We missed the train! and here we were in the old Bayou Sara
Hotel, looking for some kind of locomotion. We had eighteen miles to
make, and if the Belle Creole had made the run we would have been
all right, but the Belle Creole was not a flier; it had no time for arrivals
or departures; it just jogged along at its own good will, answering
every call, running all sorts of antics up and down the river. Dick
started out to see what he could do.
I sat on the dirty porch, looking through November china trees
towards the river. Is there anything more depressing than a view of
china trees in November? The pretty, fragrant, blue flowers long
gone, and the mocking birds (nobody ever heard of English sparrows
then!) that had drunk their fill of intoxicating liquor from the scattering
china berries were gone too. The train we had missed, the dear old
Belle Creole always missed, was a kind of private affair. The whole
outfit, about twenty miles of track, the lumbering cars, the antiquated
engines, and I think, too, the scattering woods that supplied the fuel
were all the private property of the McGehees. The McGehees had a
cotton factory in the neighborhood of Woodville, twenty miles from
the river. They had one train, cheap and dirty, that made one trip a
day, going with freight very early in the morning, returning later, with
freight and one small passenger car for the owner’s use. This
concern stopped for wood and water and nothing else, and was the
only means of transport for “casuals” like ourselves from the river to
Woodville. Ladies going back and forth and gentlemen of leisure
used their own conveyance, a turtle-back affair that was entered by a
row of steps. The dear Belle Creole was too much of a convenience
to have a time table, so it was useless to construct a time table and
plan to “connect” with that equally free and easy train. Some
disgruntled chap chalked on an unused car, left on the rails as a
depot, “We belong to the McGehees, and go when we please.”
Well, to make the matter short, though it was long to me, on that
dirty porch by the china trees, Dick found a man with a turtle-top
coach, and a harness mended by cords and stakes and bits of
rawhide. The man had a mended look, too, but he was sober, and for
a good, round sum agreed to take us to Laurel Hill. Laurel Hill, where
we proposed to go, was a post office station, about ten miles from
Woodville and four miles across country. We meandered along, tired
and out of all patience. At the date of this tramp I was a little girl and
not given to moralizing. When we arrived at Laurel Hill we were told,
“Creek is up; been a big rain somewhere; not even a horseman has
crossed all day.” There was no accommodation for man or beast at
the queer little depot, no place to sit and nothing to sit on. It was long
after dark, and there was no one to tell us the story of the high water
but a negro man, who was shutting up the one door of the building.
There was nothing left us but to go to the nearest plantation house
and ask for lodgings.
I was so tired I felt we had gone ten miles further when we
reached Major Dick Haile’s, though it really was only a few miles.
The tired horses and the sleepy driver made slow work. There was a
gate and an opening, but the house was pitch dark, every door
closed and everybody apparently asleep. The nags were willing to
stand, unhitched, beside the fence; not an automobile or flying
machine could have scared them; they were asleep, too.
After much knocking and calling at what seemed to be the door of
entrance, an old gentleman, candle in hand and very scantily
dressed, demanded to know what was wanted. My brother called
that we were on our way to the General’s, and we could not cross
the creek, so we begged the privilege of a lodging for the night.
“General’s for the wedding? Come right in.” A brighter light was
procured, and before we were seated in the reception room we
heard the hospitable voice, “Put your carriage under the shed, give
those horses a good feed, then come to the kitchen and get a bite for
yourself.” The two young daughters came in, hurriedly dressed
(people did not have bathrobes and wrappers seventy years ago). I
was awfully tired and awfully sleepy, and I began to think our
lodgings were to be parlor chairs, long before the dining room door
was opened, and the genial old gentleman, in night shirt and
trousers, led the way to the table. We had fried chicken, hot
cornbread, coffee, cakes, and I don’t know what else. It would take
me back forty years to see a cook roused at midnight, to prepare
such a meal. I presume she even took herself to the roost and
caught her young chicken by the legs and wrung its neck before she
reached the newly-made fire. Major Haile knew we had not broken
our fast at the town hotel.
It was late the following day when we all assembled to just as fine
a breakfast, and heard the major say, “Your ‘turnout’ is gone. I sent
to see about the condition of the creek; it goes down about as fast as
it rises. When you are rested my carriage is at your disposal. Your
driver was not used to these roads, but mine knows every crossing
in the creek.”
It was a four-mile drive, even after we had crossed the waters. The
wedding house we found in commotion. There were no caterers or
experts even in New Orleans in 1846. The wedding supper was in
process of preparation, under the superintendence of a noted old
cakemaker from Woodville, nine miles off. Everybody was busy; only
General McCausland, the dear old master of the house, was quietly
seated by his parlor window, a very old man, but a soldier withal,
who could rise to emergencies when required. I drew up a chair and
explained our delay, and told him how grandly hospitable his
neighbor was. The two old men were the last remaining ones of their
company of the battle of New Orleans. Their homes were in payment
from the Government for their services. The dear old gentlemen said
they were neither general nor major; they were simple soldiers who
had discharged their services and accepted their pay. Both the men
were Irish, both poor boys. They worked hard, soon exhausted the
old red soil of their neighborhood.
Later the General moved his workmen to the river bottoms, so
that, while living for health’s sake in the old home, the house of
which he originally helped to build, his income came from Bayou
Fordoche, many miles away.
Time flew; neighbors had arrived, the table was spread in the long
back porch. The guests, many of them, lived miles and miles away,
in common country roads, often through dense woods—a long drive
under best circumstances, a perilous one at night, everybody
waiting, everybody in a hurry, everybody getting tired and fretful. It
was long after the appointed time, and the New Orleans preacher
had missed the train! Old Dilsey in the kitchen was mad because her
pig was getting too brown; Elfey in the porch worrying that her ice
cream was waiting too long; ladies in the parlor trying to kill time;
men wandering around the front yard in restless groups. Carriages
had been to the depot; no appearance of Mr. Jahleel Woodbridge,
the New Orleans minister. He was endeared to the family, had been
for years their minister at Woodville. Bride, in all her regal attire,
upstairs in tears; no Presbyterian preacher nearer than ten miles
away. So we waited and waited. At last the General sent for his
especial groom, ordered him to take the buggy and go four miles
through the woods, where there was a Methodist itinerant, and tell
him to come without delay to marry the couple.
The accommodating preacher came, just as he was. He had been
plowing his field, and his wife, off to see a sick child, had carried the
keys with her. He could not even get a clean handkerchief, but he
came in his workaday suit. The company hastily assembled. He
performed the ceremony, gave them his blessings, and
congratulated her on her “escape from the quicksands and shoals of
celibacy.” Recognizing his own condition at the time, he begged to
be excused from refreshments, and took a rapid and hurried
departure. The kindly man was scarce gone when Mr. Jahleel
Woodbridge arrived in a coach, most astonishingly like the one we
had used the previous day. Only a year or two later the hospitable
Major passed away; shortly after the General followed him, and the
dear old homes have passed away also from the face of the earth.
XIV
THE BELLES AND BEAUX OF FORTY