While the governor formally summoned lawmakers to the capital, it was Miller who put the issue of expanded gambling atop Maryland's political agenda and who relentlessly keeps it there.
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"If the Senate president wasn't pushing this, we wouldn't be meeting," said Sen. Paul Pinsky, a Prince George's Democrat and longtime gambling opponent.
Del. Frank Turner, who chairs the House subcommittee that handles gambling issues, called Miller's role "pivotal" in bringing lawmakers back. "I don't see anybody on the House side that's banging drums to do this," said Turner, a Howard County Democrat. "I see one person who is determined to make this happen this year."
To be sure, it took action by Gov.Martin O'Malleyand the agreement of House SpeakerMichael E. Buschto bring lawmakers to the State House at the height of summer vacation season. But many lawmakers believe the governor and House speaker, in the past only lukewarm supporters of gambling, are hoping get the issue resolved largely so they can move on to other matters in the annual 90-day session that begins in January.
"I'm just so sick of this issue," O'Malley said Wednesday. "I just want to get it behind us."
Among the issues that await the Assembly in 2013 is a long-term $500 million budget shortfall. O'Malley is also expected to try to revive a wind power bill he couldn't get during the past two regular sessions.
During the special session, lawmakers will consider a bill that, among other things, would allow a Prince George's casino and permit table games there and at the five sites already licensed for slot machines. A Senate committee will take up the matter Thursday. House members are expected to report Friday to consider the measure, which would also reduce slots tax rates to compensate casino owners for increased competition.
Miller, who for weeks has largely avoided the press, declined to be interviewed for this article. Earlier this year, he explained his devotion to the Prince George's casino as being driven by a desire to raise money for the state and county to pay for programs without further tax increases. He also spoke of the potential to create jobs.
"It is thousands and thousands of jobs. It is increased revenue," Miller said recently. "We need some elected officials to humble themselves and ask and find a way to make this happen."
What Miller wants to happen now are things that didn't in 2007, when the legislature first approved five slots-only gambling locations in the state. At the time, strong opposition to a location in Prince George's – especially from its House delegation — kept the county out of the bill. And many lawmakers were squeamish about approving table games, which raised the specter of full-fledged casinos.
Since then, National Harbor, an upscale development on the Potomac River, has emerged as a rival to Rosecroft Raceway as a leading contender for a Prince George's casino. Early this year, County ExecutiveRushern L. BakerIII threw his support behind a "destination" casino at National Harbor, contending that it was the one location that could attract tourism rather than relying on local residents for its customer base. Later this year, Miller also expressed support for National Harbor.
Meanwhile, as surrounding states have embraced table games, much of the opposition to Las Vegas-style casinos has faded.
During the regular session, O'Malley expressed doubts about adding a Prince George's casino, expressing concern about its effect on existing licensees. When the session ended in disarray, the governor complained that "a silly bomb of gambling" had blown up his administration's budget plans. But he has become a supporter of expanded gambling.
Busch, once a fierce opponent of increased gambling, has also come to support holding the session.
Some observers say acquiescing to the Senate president's priorities is a way for the two fellow Democrats to keep relations with Miller on a civil plane for the next two years. For O'Malley, who is widely believed to have his eyes on a presidential run in 2016, harmony with the Senate president could be especially crucial.
"Miller would absolutely have the power to either deliver or deny the governor's legislative agenda for his remaining two years in power, said Todd Eberly, a political science professor at St. Mary's College of Maryland. "I have no doubt he would be perfectly willing to mess with O'Malley's national ambitions."
Pinsky said agreeing to the special session was a matter of "keeping the peace."