STATE AND FEDERAL CASE LAW AND STATUTES FROM 1776 TO 1976 ARE EXAMINED. ENGLISH LAW IS ALSO REVIEWED TO PLACE LEGAL DEVELOPMENTS IN THEIR ECONOMIC, SOCIAL, AND POLITICAL CONTEXTS. GENERAL FINDINGS INCLUDE THE NEED TO EXAMINE EACH FORM OF GAMBLING - PUBLIC AND PRIVATE LOTTERIES, WAGERING ON SPORTING AND OTHER EVENTS, MACHINE GAMBLING, AND CASINO TYPE OPERATIONS - ON ITS OWN TERMS. THE NEED TO CONSIDER OPERATORS, PARTICIPANTS, LEVELS AND PLACES OF PARTICIPATION, METHODS OF PROMOTION, AND DEGREE OF REGULATION IS ALSO DISCUSSED. THE RANGE OF EFFECTIVE METHODS OF CONTROL FROM EASILY CONTROLLED PUBLICLY OPERATED CASINOS TO THE LEAST EASILY SUPPRESSED CLANDESTINE LOTTERIES ARE IDENTIFIED. IT IS CONCLUDED THAT STATE AND FEDERAL LEVEL CRIMINAL, CIVIL, AND TAX POLICY MUST BE COORDINATED TO EFFECT REFORM SUCCESSFULLY. (AUTHOR ABSTRACT MODIFIED)