As the executive director of the Nebraska Racing Commission since 2008, Sage added oversight of casino gambling after voters approved a petition to allow casinos at the state's horse racing tracks in November 2020. He oversaw a staff that began with a single member to now having over two dozen employees.

Sage's career in horse racing began as a security officer in 1988 at Omaha's Ak-Sar-Ben Racetrack. He graduated in 1991 from the University of Nebraska at Omaha with a B.S. in criminal justice and started as an investigator for the Nebraska Racing Commission in 1993.

After graduating in 1995 from the Nebraska Law Enforcement Training Center, Sage became the commission's director of investigations in 2003. He was an instrumental board member for the Organization of Racing Investigators and currently is serving out his term as the chairman of the board of the Association of Racing Commissioners International.

In the Lincoln Journal Star article, Nebraska commissioner Tony Fulton called Sage a “good man” who is hard-working and diligent, and took on the task of regulating casino gambling in the state with vigor.

“This has been a very heavy lift, and he's done an admirable job,” Fulton said.

The commission also voted Friday to make Casey Ricketts, its current director of compliance, the interim executive director.

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“Bonin is known as a tough and unyielding advocate in court and previously served in private practice before becoming an Assistant Attorney General in Louisiana,” said ARCI Chair Tom Sage of Nebraska. Sage also said that Bonin has never lost a doping prosecution and is “extremely well versed in all aspects of racing regulatory law.”

The ARCI Regulatory Attorneys committee meets to discuss legal trends affecting the regulation of horse racing as well as to review recent court decisions that may be relevant to all jurisdictions.

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Chancey replaces Duncan Patterson, the Chair of the Delaware Thoroughbred Racing Commission, who will now lead the ARCI Continuing Education Committee.

“Duncan has been a great steward for the Association, but the time has come to put a veterinarian in charge of this committee as well as someone with direct experience not limited to only Thoroughbred racing,” said ARCI Chair Tom Sage of Nebraska. “With the role now being played in the U.S. by the Horseracing Integrity and Safety Authority, this committee must recommend equine welfare and anti-doping policies that are applicable to all horses regardless of breed. Dr. Chancey is the right person to lead this committee.”

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The new chair-elect is Doug Moore, who was appointed to the Washington Horse Racing Commission's board after retiring as its executive director. Anthony Salerno of the Pennsylvania Racing Commission was named treasurer.

In his address, Sage said: “Our U.S. members face enormous problems caused by the uncertainty of the implementation of the Horseracing Integrity and Safety Act [HISA] and its programs… There's an expectation in some parts of the industry that all regulatory turmoil and new costs will result in fewer breakdowns, fewer equine deaths, and apprehend more criminals. We'll see. We call it like it is, realizing not everyone will like what we say. To us, integrity counts more than narrative. Our agenda remains simple: To do the right thing.”

ARCI is the umbrella organization representing governmental regulators of horse and greyhound racing.

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The modified rule tightens restrictions already in place but clearly says that any use of the crop to “urge” the horse must be limited. The new RCI Model Rule continues to rely upon the judgement of the Stewards as to when to impose sanctions, but is clear that using the crop more than two consecutive times or not waiting three full strides before reuse is to be regarded as a rule violation.

The RCI did not include an overall strike count in the actual rule but did approve corresponding guidelines to advise officials that use of the crop for more than six strikes during the race is something to be assessed.

“If our accredited Stewards cannot judge when a jock has crossed the line then perhaps they should not be in the stand,” said former jock and racing official Doug Moore who is Executive Director of the Washington State Racing Commission and Chair of the RCI Rider and Driver Safety Committee. “If the officials fail to exercise their responsibility in this matter then the feeling at the meeting was that the matter must be reviewed up top in assessing someone’s job performance and deciding whether to keep them on.”

“Several years ago we changed the riding crop requirements to rely upon poppers which provide an audible stimulation to the horse in addition to the visual one of showing the horse the crop,” said RCI Chairman Tom Sage. “As a result, it is extremely rare to find a horse with evidence of crop misuse coming in off the track. In helping to protect the horse we may have created an opposite impression with the public as they now hear the noise coming from the crops.”

RCI President Ed Martin noted that testimony from the Jockey Club as to public perception was taken to heart and the regulators found it compelling to help address that by defining clearly what the chance to respond should be.

“The image of someone wailing away on a horse coming down the stretch is not a good one for a sport struggling to assert a positive image. But controlled and limited use with three full strides to respond was something the regulators believed would help mitigate that,” he said.

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The modified rule tightens restrictions already in place but clearly says that any use of the crop to “urge” the horse must be limited. The new RCI Model Rule continues to rely upon the judgement of the Stewards as to when to impose sanctions, but is clear that using the crop more than two consecutive times or not waiting three full strides before reuse is to be regarded as a rule violation.

The RCI did not include an overall strike count in the actual rule but did approve corresponding guidelines to advise officials that use of the crop more than six strikes during the race is something to be assessed. The RCI Board did not want to remove the authority of the Stewards to exercise judgement based on the specific instances of the race but did want to provide guidance as to when to start questioning the possibility of overuse.

“If our accredited Stewards cannot judge when a jock has crossed the line then perhaps they should not be in the stand,” said former jock and racing official Doug Moore who is Executive Director of the Washington State Racing Commission and Chair of the RCI Rider and Driver Safety Committee.

“If the officials fail to exercise their responsibility in this matter then the feeling at the meeting was that the matter must be reviewed up top in assessing someone's job performance and deciding whether to keep them on.”

“Several years ago we changed the riding crop requirements to rely upon poppers which provide an audible stimulation to the horse in addition to the visual one of showing the horse the crop,” said RCI Chairman Tom Sage. “As a result, it is extremely rare to find a horse with evidence of crop misuse coming in off the track.”

“In helping to protect the horse we may have created an opposite impression with the public as they now hear the noise coming from the crops,” he said.

RCI President Ed Martin noted that testimony from the Jockey Club as to public perception was taken to heart and the regulators found it compelling to help address that by defining clearly what the chance to respond should be.

“The image of someone wailing away on a horse coming down the stretch is not a good one for a sport struggling to assert a positive image. But controlled and limited use with three full strides to respond was something the regulators believed would help mitigate that,” he said.

There was resistance to putting a hard strike limit in the Model Rule to emulate what Maryland and Delaware have enacted. Some jurisdictions felt that it would be deemed arbitrary and not withstand legal challenge in their states. Others questioned the “magic” of the number 6, asking why not 5 or 7 or 8? The collective wisdom was to use a strike limit as a guideline and leave the judgement in the hands of the officials as every case is individual, especially when you consider different track lengths.

There was universal agreement that any abuse of the horse in any way must be severely addressed. The RCI committees intend to develop progressive penalty guidelines in this area in the coming months to ensure that multiple violations are deterred across the system.

“We appreciate the input we have received on this issue from countless individuals and organizations like Breeders Cup, the Thoroughbred Safety Alliance, the Jockey Club, the AQHA, the Jockeys Guild and our regulatory veterinarians,” said RCI Chair Tom Sage.

“We believe we have found a balance that protects the horse, mitigates perception problems, and maintains the essence of a sport where every horse runs its best in every race,” he said.

FULL TEXT OF THE ARCI RIDING CROP MODEL RULE

Adopted 12/4/2020 – changes underlined.

  (7). Use of Riding Crop

(a)    Although the use of a riding crop is not required, any jockey who uses a riding crop during a race shall do so only in a manner consistent with exerting his/her best efforts to obtain a maximum placing that affects purse distribution or wagering pools.

(b)    In all races where a jockey will ride without a riding crop, an announcement of such fact shall be made over the public-address system.

(c)    No electrical or mechanical device or other expedient designed to increase or retard the speed of a horse, other than the riding crop approved by the stewards, shall be possessed by anyone, or applied by anyone to the horse at any time on the grounds of the association during the meeting, whether in a race or otherwise.

(d)    Riding crops shall not be used on two-year-old horses before April 1 of each year.

(e)    The riding crop shall only be used for safety, correction and limited encouragement, and be appropriate, proportionate, professional, taking into account the rules of racing herein.  However, stimulus provided by the use of the riding crop shall be monitored so as not to compromise the welfare of the horse.

(f)    Use of the riding crop varies with each particular horse and the circumstances of the race.

(g)    Except for extreme safety reasons all riders should comply with the following when using a riding crop:

    (A)   Initially showing the horse the riding crop, and/or tapping the horse with the riding crop down, giving it time to respond before using it; 

    (B)   The riding crop shall not be used more than twice in succession and the Having used the riding crop, giving the horse must be given a chance to respond before using it again;

          i. “Chance to respond” is defined as at least three complete strides and one of the following actions by a jockey:

            1.   Pausing the use of the riding crop on their horse before resuming again; or

            2.   Pushing on their horse with a rein in each hand, keeping the riding crop in the up or down position; or

            3.   Showing the horse the riding crop without making contact; or

            4.   Moving the riding crop from one hand to the other.

    (C)   Using the riding crop in rhythm with the horse's stride.

(h)    When deciding whether or not to review the jockey's use of the riding crop, stewards will consider how the jockey has used the riding crop during the course of the entire race, with particular attention to its use in the closing stages, and relevant factors such as:

    (A)   The manner in which the riding crop was used

    (B)   The purpose for which the riding crop was used

    (C)   The distance over which the riding crop was used and whether the number of times it was used was reasonable and necessary

    (D)   Whether the horse was continuing to respond.

(i)    In the event there is a review by the Stewards, use of the riding crop may be deemed appropriate in the following circumstances:

    (A)   To keep a horse in contention or to maintain a challenging position prior to what would be considered the closing stages of a race,

    (B)   To maintain a horse's focus and concentration,

    (C)   To correct a horse that is noticeably hanging,

    (D)   To assure the horse maintains a straight course, or,

    (E)   Where there is only light contact with the horse.

(j)    Prohibited use of the riding crop includes but are not limited to striking a horse:

    (A)   On the head, flanks or on any other part of its body other than the shoulders or hind quarters except when necessary to control a horse;

    (B)   During the post parade or after the finish of the race except when necessary to control the horse;

    (C)   Excessively or brutally causing welts or breaks in the skin;

    (D)   When the horse is clearly out of the race or has obtained its maximum placing;

    (E)   Persistently even though the horse is showing no response under the riding crop; or

    (F)   Striking another rider or horse.

(k)    After the race, horses will be subject to inspection by a racing or official veterinarian looking for cuts, welts or bruises in the skin. Any adverse findings shall be reported to the Stewards.

(l)    The giving of instructions by any licensee that if obeyed would lead to a violation of this rule may result in disciplinary action also being taken against the licensee who gave such instructions.

ARCI Riding Crop Guidelines for Stewards

In addition to the rule restricting crop use to two consecutive instances before giving a horse the opportunity to respond as defined as three full strides:

• A jockey may use a riding crop in an underhand position on the hind quarters or shoulder without the wrist rising above the shoulder during a race prior to the final 1/4 mile of the race; or with both hands on the reins to tap the horse on the shoulder.
• A jockey may use the crop as necessary to control the horse for the safety of the horse and rider.
• A jockey who elects to use a riding crop for limited urging, except as permitted above, should not use the crop more than six times during the race.

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Alex Waldrop – CEO and President of the NTRA

Dr. Sarah Memmi – University of Louisville

Peter J Sacopulos – Sacopulos, Johnson, & Sacopulos

Dr. Will Farmer – Churchill Downs Equine Medical Director

Barbara Borden – Chief State Steward, Kentucky Racing Commission

Hugh Gallaher – Safety Steward, NYRA

Michele Kopiec – United States Trotting Association

TC Lane – United States Trotting Association

Jenn Daniels – Standardbred Transition Alliance

Tom Sage – Executive Director, Nebraska Racing Commission

Registration is now open at the UofL Equine Payment Portal, https://louisville.edu/business/payments/equine. The cost is $80 prior to December 8, 2020 and increases to $110 afterwards. Registration closes Friday, Dec. 11, 2020. A link for the event will be sent to all registered participants.

Participants will need to have access to a computer with Windows 10, reliable high-speed internet, a webcam, and a microphone. Please avoid Chromebooks/Chrome OS, iPads. Google Chrome is the browser of choice; the second choice is Firefox. There will be a call-in number as well if sound or microphones are an issue.

Please contact Alyssa Carwile at contactus@horseracingofficials.com or (859) 224-2702 for more details.

The mission of ROAP is to accredit and provide continuing education to all racing officials, stewards and judges in the horse racing industry. By doing so ROAP is enhancing the image and upholding the integrity of horse racing at all levels.

ROAP, which receives primary funding from The Jockey Club and is based in its Kentucky office, is a 501(c)(6) organization whose board of directors is made up of representatives from 17 industry organizations and 10 at-large representatives. Stewards and judges receive their accreditation and continuing education credits through this program. The website address for ROAP is horseracingofficials.com.

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The program, an initiative of the Association of Racing Commissioners International (ARCI), is the first of its kind and has applicability to all existing and aspiring horse racing investigators.

“The job of a racing investigator is a specialty involving knowledge not only of police procedures concerning interrogation and evidence gathering but also of horseracing, the backstretch, and the horses themselves,” said RCI Chair Tom Sage of Nebraska, a former longtime law enforcement officer and racing investigator and past-Chair of the Organization of Racing Investigators.

The initial program will last two days and be conducted online by the UofL Equine Industry Program. Additional programs may be conducted in person and the ARCI is committed to working with both the University of Louisville's Equine Industry Program and the University of Arizona's Racetrack Industry Program.

Those participating in the program will be deemed certified after passing an examination. The RCI encourages commissions and racetracks to phase in a requirement for a current Racing Investigator Certificate as a requirement for employment.

RCI President, Ed Martin, who formerly served as the New York regulator responsible for some of racing's most notable investigations – Breeders' Cup Pick 6 Wagering Scandal, the NYRA Mutuel Department fraud conspiracy, OTB mismanagement, Yonkers Raceway drug search lockdown – noted that “proactive investigators will develop intelligence networks and not be hesitant to dig deep into any situation where things do not seem as they should.”

“There is a tremendous amount of expertise and experience that is required to do this job properly,” he said, noting the work of the NY Gaming Commission in its effective records audit investigation and prosecution of a horse trainer who was circumventing the drug rules and testing lab and the work of the Louisiana, Oklahoma, and Nebraska commissions initiating a successful federal prosecution of illegal drug compounding used to facilitate horse doping.

The curricula for the program will focus on basic horsemanship skills, safety procedures in the barn or paddock areas, racing terminology, overview of officials and their duties, creating the condition book and drawing for the race as well as what is involved in preparing a horse for a racing career. Equine care and medications, vet records, investigatory tools and techniques, interactions with other enforcement entities, evidence gathering, and ways cheaters attempt to avoid detection will also be addressed.

“The University of Louisville is excited for its collaborative work with the ARCI to bring this certification program to fruition, said Sean Beirne, Director of the UofL Equine Industry Program. “It is an important aspect of our mission to educate the professionals in the horse racing industry, to build on their knowledge, and provide resources to enhance and develop the methodology to create standards for the execution of their duties,” Beirne added.

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