Jueteng

Under Spanish rule a lottery was run in Manila, although it is unclear whether it was approved via Madrid or developed locally. It is unclear when the practice of jueteng began, but it was mentioned in the Penal Code of 1887.[2][3] The use of Spanish-derived terms in the game suggest it developed under Spanish rule.[4] By 1893, Jueteng tickets were openly sold on inter-island ships.[2][3] José Rizal is perhaps the most well-known early fan of jueteng: he won ₱6,200 while in exile in Dapitan, Zamboanga del Norte, which he used in part to buy a farm which is now a historical site.[5][6]

The etymology of the word is unclear. The game is sometimes referred to as "Chinese jueteng", despite being introduced by the Spanish.[1] In the 20th century games were often run by Chinese immigrants, although by the end of the century locals had taken over.[3] It is thought the term could originate from two Chinese words, although opinions differ on what they were.[7][8] When Chinese Filipino publications such as the World News refer to the game, they use the word 花档 (huādàng),[9][10] which means "flower shop" in standard Chinese.[11]

When the Philippines became an American colony, the government cracked down on jueteng.[12][13] In 1907, it was specifically made illegal by the colonial-era Philippine Legislature through Act No. 1757.[4][14] Since independence, various administrations have continued to try different tactics to end the practice, without success.[15] Jueteng existed even during the martial law era, although not as openly.[16]

A kubrador plies his trade in San Juan, Ilocos Sur. He carries a notepad of all the bets he's collected that day, along with other supplies for playing jueteng.

A list of jueteng numbers from bettors in Baguio at different times of a single day.

Jueteng is a numbers game.[1] Before the game, jueteng solicitors, colloquially known as kubrador (cobrador), collect bets house to house.[17][18] They are supervised by higher level operators known as kabo (cabo),[18] who are responsible for managing operations within a certain community.[4] At the top are the bankero (banqueros),[19][13]^:351 also known as kapitalista (capitalistas)[4][20][21] or "jueteng lords".[22][23]

Some kubrador may also erect stalls or kiosks on the street to attract bettors. The bettor picks two numbers from one to thirty-seven (in some versions, thirty-eight).[24]^:§2(b) Depending on the kubrador, the game either occurs right then and there,[12] or, more commonly, the kubrador will return later with any winnings.[17][16]

Bets can be as low as ₱0.25,[25] and it is usual for three games to take place each day.[26] A bet of only ₱1 can win between ₱400 and ₱1,000,[17][25] with payout often depending on the number of entries.[1] A tambiolo (lottery drum) is often used in conjunction with thirty-seven bolas (balls) to mix up the numbers.[1][12][27] Despite this, cheating by the operators of the game is still possible.[28] Each of the numbers has a specific association within jueteng mythology.[4] Various superstitions exist as to which numbers should be chosen, and some kubrador even encourage such beliefs by offering to tell someone their lucky numbers based on their dreams;[17][29] when a kubrador interprets signs for a bettor, this is called degla.[16]

Jueteng is officially illegal in the Philippines, though enforcement of the law is lax.[26][30] The decentralized nature of the game, and the multitude of operators, make it hard to eliminate. In some areas the game is run by government officials.[22] The penalties for playing jueteng are officially laid out in Republic Act 9287 (based on Presidential Decree 1602); for a simple bettor, the penalty is only thirty to ninety days in jail.[24]^:§3(a) Some, such as Justice Marvic Leonen, have questioned the wisdom of going after jueteng bettors when other types of gambling, such as Philippine Offshore Gaming Operators, are allowed to freely proliferate. This selectivity has also been criticized as it targets the activities of the poor and not that of the rich.[31] President Fidel V. Ramos suggested it should be legalized.[2] Bills to this effect have even been introduced into the Congress of the Philippines.[32]

Tackling jueteng was not seen as a priority by President Benigno Aquino III. However, he appointed Jesse Robredo, who worked to eliminate jueteng in the City of Naga while he was its mayor,[33] as Secretary of the Interior and Local Government.[34] In 2012 the Pangasinan police chief was fired by the national government for failing to stop gambling, after the Pangasinan Governor was accused of benefiting from jueteng.[35] Six other police chiefs were also fired under similar circumstances.[36] Following Robredo's death in a plane crash, jueteng reportedly expanded.[34]

President Rodrigo Duterte suggested the game should be legalized in 2016.[15][37] Duterte has however taking action against illegal gambling operations, which he accuses of being run under the facade of legitimate government operations.[3] In 2018 Duterte suggested leaving jueteng out of his crackdown on illegal gambling,[38] although this was quickly retracted.[39] In mid-2019 he again announced an easing of a crackdown against the game, citing its role in providing income, and fears those who lose that income would turn to activities such as the drug trade.[40] Around the same time, police chiefs were declared responsible if jueteng operations continued to occur under their areas of jurisdiction.[41]

Sanctioned jueteng

See also: PCSO Lottery Draw § Small Town Lottery games

Logo of the PCSO's Small Town Lottery

Although much has been tried to eradicate this form of unregulated gambling by the government, all such efforts have failed due to the game's widespread popularity.[15] In 1987 under the Presidency of Corazon Aquino, the Philippine Charity Sweepstakes Office (PCSO) first sanctioned and began operating a similar game, called the "Small Town Lottery" (STL).[42] This was meant to compete with illegal operations, and direct revenue from the games to the government.[25] They increased the number that bettors have to choose from from 37 to 40. This choice was made to seemingly detach STL's identity from that of jueteng and decrease the odds of winning. STL was suspended in 1990, following which an investigation by the House of Representatives found that STL franchises were given to known jueteng operators. However, the game was revived in 2005, under the Presidency of Gloria Macapagal Arroyo, following which it was asserted that jueteng operations increased.[42] It was suspended by President Duterte for a month in 2019, with Duterte asserting "massive corruption" within the PCSO board.[43] The Philippine National Police reported a rise in jueteng operations during this time.[44] Individuals who relied on the STL for income stated they would be forced to return to jueteng if the STL remained closed.[45]

It has been asserted that illegal jueteng games were also run through branches and staff of the PCSO.[3] The Commission on Audit estimates that corrupt PCSO STL practices cost the government a combined ₱14.9 billion in missing receipts in 2017 and 2018.[25] The Catholic Bishops' Conference of the Philippines has come out against the STL.[42]

STL, along with other PCSO lottery games, was suspended in Luzon during the COVID-19 pandemic.[46]

A 2005 Social Weather Stations survey found that over half of all adult Filipinos had engaged in some form of gambling over the previous year. Jueteng was the second most popular form of gambling overall, being second for women and fourth for men. The survey estimated this meant 6.9 million had played Jueteng, including 3.7 million (15% of) men and 3.2 million (13% of) women. Despite its popularity, most people reported it as extensively damaging public morality, with a majority feeling this even among non-jueteng playing gamblers. There was also an absolute majority against legalization.[54]

The low cost of a ticket leads many to consider the gambling relatively harmless,[17] with no-one clearly suffering due to the practice.[15] It is even often seen as a community activity. Due to the illegality of the game and the subsequent opaqueness and lack of a formal structure, a high degree of trust by the bettor in their kubrador is required. This trust is in part due to their being members of the community. Some inherit the job directly from their parents, while others are chosen due to already being a trusted member of the community.[17] Such trust can lead to kubradors being relied on for other tasks, such as collecting donations for sick individuals.[4] Trust is also required in the people running the particular jueteng game, lest bettors switch to another jueteng lord.[17] If such a switch occurs, the new lords often hire the existing kubradors due to their existing integration into the communities.[18]

As there is no limit on how few or many bets can be taken in one game, and the odds of winning are more achievable than a traditional lottery but still long enough that a significant amount can be won, the game is very appealing to Filipinos living in poverty.[17][26] While the payouts are not high, they can be extremely significant for those living in poverty.[26]

Jueteng is very important to the Filipino informal economy; Congress estimated the annual gross revenue of jueteng operators to be around US$1 billion in 2000.[13] The estimated value of ₱38 billion in 2010 exceeded the ₱30 billion brought in by the government-run Philippine Amusement and Gaming Corporation.[4]

By 2019, this estimate had risen to US$1.4 billion, with operations earning up to ₱200 million of revenue daily in Luzon.[3] Jueteng operators and their staff were estimated to number 400,000 in 2009.[13] At one point, it was estimated that 20,000 people in San Fernando, Pampanga, alone derived their primary income from the game. Through commissions, a kubrador may earn up to ₱200 daily.[26] Some even take 10% of winnings.[2]

Jueteng has spread to Filipino communities in Italy.[15][55]

The 2006 film Kubrador by Jeffrey Jeturian centers on an aging bet collector (played by Gina Pareño) who finds her mundane existence suddenly transformed by an unforeseen series of events as she seeks players for the illegal game of jueteng she helps operate.[58] This was based on a real-life kubrador, and female informal settler who moved to the capital and spent 30 years in the industry. This individual provided information to the film's production team, however she did not attend the film's premier for fear of being arrested.[4]

The Tagalog term anak ng jueteng, meaning "son of a gambler", is similar to the English slang "son of a gun".[8]

• Gambling in the Philippines