In 1931, Nevada made a decision that would permanently reshape its identity: it legalized wide-open gambling. The move is often portrayed as inevitable, but the truth is far more nuanced. The legalization effort was driven not by casino owners or urban political machines, but by a quiet rancher from Humboldt County — Assemblyman Phil Tobin — who introduced two bills that together created the legal foundation for Nevada’s modern gaming industry.
Tobin had no ties to gambling, no connections to Reno or Las Vegas, and no personal stake in the outcome. That was precisely why he was chosen. His clean reputation made him the perfect sponsor for a controversial proposal that urban legislators feared would look self-serving if they introduced it themselves.
This article explores the two bills Tobin introduced, the political climate that made them possible, and the earlier failed attempt in 1929 that set the stage for Nevada’s historic shift.
Nevada Before 1931: Illegal Gambling, Economic Collapse, and Public Hypocrisy
A State Where Gambling Was Illegal — But Everywhere
Nevada outlawed gambling in 1909, but the ban was widely ignored. By the 1920s, gambling thrived in back rooms, saloons, and mining camps. Local law enforcement often looked the other way — or profited from the activity. The result was a strange contradiction: gambling was illegal, yet it was one of the state’s most reliable revenue sources.
Tobin later said he was “tired of the way illegal gambling was being conducted,” noting that the only people benefiting were “local police officers” and anyone “with a deck of cards and a blanket.” Legalization, in his view, would bring transparency and fairness to a system already operating in the shadows. In short, there were multiple reasons why gambling was legalized in 1931.
The Great Depression Forces a Reckoning
By 1931, Nevada was in economic freefall. Mining had collapsed, ranching was struggling, and the state desperately needed new revenue. The impending construction of Hoover Dam promised an influx of workers — and with them, demand for entertainment.
Legal gambling suddenly looked less like a moral question and more like an economic lifeline.
The Failed 1929 Gambling Bill
Two years before Tobin’s effort, a bill to legalize gambling was introduced in the 1929 Nevada Legislature. It failed for several reasons:
• The economy had not yet collapsed, so urgency was low
• Moral opposition from churches and women’s groups remained strong
• There was no coordinated political strategy behind the bill
But the 1929 attempt softened the ground. It made the idea of legalization less shocking and gave pro-gaming forces a blueprint for trying again — and doing so more strategically.
At the head of those pro-gaming forces was Bill Graham, a one-time casino manager for Nick Abelman in the dusty but booming mining town of Tonopah. Abelman was a friend and partner of George Wingfield. Wingfield was the richest man in Nevada for decades.
In the mid ‘20s, Graham and Jim McKay moved from Tonopah, in northern Nevada, to Reno. It was a chance for scenery, mining for ranchers, and involved several gaming properties that Wingfield owned, as well as what Reno was famous for at the time: prostitution. Wingfield had real estate, power, and even owned banks. Graham was earthy, direct, and good at managing people.
Why Phil Tobin Was Chosen to Lead the Effort
Tobin was a freshman assemblyman from Humboldt County, representing one of the “Cow Counties,” far from the influence of Reno and Las Vegas. His rural background and lack of gaming ties made him politically bulletproof.
Urban legislators feared that introducing the bill themselves would make it look like a self-interested power grab. Tobin made the effort appear statewide rather than city-driven.
He was also expendable. If the bill failed, he could be the “sacrificial lamb.” But Tobin embraced the role, believing that legalizing gambling would bring order to a chaotic system.
Tobin’s First Bill: Legalizing Gambling Statewide
The first of Tobin’s two bills was the most transformative: it repealed the 1909 ban on gambling and legalized wide-open gaming across Nevada.
Key Features: Assembly Bill 98
• Repealed the statewide prohibition on games of chance
• Legalized table games, slots, and other gambling devices
• Allowed counties to issue licenses and collect fees
• Brought gambling “into the open and above board,” as Tobin later said
The Public Morals Committee Battle
Tobin’s bill was sent to the Public Morals Committee, where he faced intense opposition. He recalled that “there must have been 200 women and ministers there” protesting the measure.
Despite the moral outcry, the bill passed — largely because legislators believed regulated gambling was preferable to the unregulated status quo.
Why It Passed in 1931
• Nevada needed revenue
• Illegal gambling was rampant anyway
• Hoover Dam workers were coming
• Tobin’s clean reputation neutralized critics
• Behind-the-scenes political push
The political push is a polite way to say “money”. The entire state needed a cash influx. With mining depressed, tourism and local “excitement” helped pay the bills. Bill Graham was the one helping pave the way with cash. Not just his cash, but also that of other locals, most notably George Wingfield. Multiple Las Vegas operators sent their regards and put their money where their mouth was. Harold Stocker, owner (with wife Mayme) of the Northern Hotel and Casino in Las Vegas, quipped that he sent Graham a suitcase full of money.
Yes, the bill passed, but only 24-11. Not everyone was impressed with George Wingfield’s money, or Graham’s blatant attempt to sway their opinion – or vote.
The bill’s passage marked the beginning of Nevada’s third historical phase: the gaming era.
Tobin’s Second Bill: Creating Nevada’s First Gambling Regulatory Framework
Legalizing gambling was only half the battle. Tobin’s second bill established the first statewide regulatory structure for gaming.
What the Second Bill Did
• Created a licensing system for gambling operators
• Allowed counties to regulate games and collect fees
• Prohibited gambling in places where minors were likely to be present
• Required games to be operated in designated, controlled environments
Tobin specifically wrote into the bill that slot machines could not be placed in grocery stores, meat markets, or hotel lobbies — a major step toward professionalizing the industry, but it was years before those changes took effect.
SIDENOTE
In the 1980’s, I sorted through boxes and boxes of gaming licenses at the Nevada State Archives with the help of Guy Rocha, the state historian. He explained the history, and I took the notes. Gaming licenses were no more detailed than fishing licenses. There was no background check, no financial resume, no details. Often, the licenses I recorded for Winnemucca, Ely, and Elko were nothing more than a carbon duplicate, a handwritten note with location, name, and operator. The fees were minimal, well under $100 for a nice property like the Humboldt Hotel. It was a friendly occupation, this gaming business. And the licensee might be the property owner, or just someone running the club, or even a single game, like roulette. Many licenses listed only a last name. Oh, how the times would change!
A Primitive Precursor to the NGCB
This early regulatory framework was minimal compared to the modern Nevada Gaming Control Board (established in 1955), but it was essential. It prevented the “wide open” era from devolving into chaos and gave counties the authority to enforce standards.
Tobin later said that without the eventual creation of the Gaming Control Board and Gaming Commission, “we wouldn’t have gambling here now,” because the public would have become disgusted with the corruption.
Aftermath: Tobin’s Legacy and the Birth of Modern Nevada Gaming
Tobin served only one term in the Assembly and one unremarkable term in the Senate before returning to Humboldt County. Yet his impact was enormous. His two bills:
• Legalized gambling statewide
• Created the first regulatory framework
• Set the stage for the 1955 NGCB and 1959 Gaming Commission
• Laid the foundation for Nevada’s transformation into a global gaming center
As historian David Schwarts (UNLV Gaming Research Director) put it, Tobin is “pretty much known for the gaming legislation, which is probably a big enough thing, because that changed the whole state.”
