Final GFLB Seat Filled as New York Casino Licensing Enters Decisive Phase

As the Community Advisory Committee (CAC) stage of the downstate New York casino licensing process was completed, the New York State Gaming Commission (NYSGC) appointed Cindy Ruby Estrada as the fifth and final member of the Gaming Facility Location Board (GFLB).

Her appointment marks the first time the GFLB is fully operational since its creation in 2022. With all five seats filled, the panel begins its critical task of scoring and ranking billion-dollar casino bids.

On September 30, the Metropolitan Park project in Queens became the fourth and final bid to receive approval from its CAC. Now, the GFLB will decide which projects advance to licensing.

Estrada Joins as Fifth Member

At its September 30 meeting, the NYSGC unanimously approved Estrada’s appointment. Chairman Brian O’Dwyer described the role as a “Herculean task,” citing the billions in investment, tax revenue, and jobs at stake.

“Members serve without compensation in a limited license situation,” O’Dwyer said during the meeting. “At the conclusion of this, there will be up to three people that (will) be very happy and at least one, and maybe more, who will be unhappy … it is an incredible task … very important in terms of both our taxation and in terms of the number of jobs that are created.”

In a statement released by the Commission, O’Dwyer added:

“I thank Cindy Estrada for lending her expertise and taking on this true public service. The Gaming Facility Location Board’s important work has far-reaching implications for the entire State, and I am grateful for their service.”

Estrada, who called the appointment “an honor,” is the Executive Director of the New York City Hispanic Chamber of Commerce, a role she has held since 2015. She is also the only Bronx resident on the Board. That could be important, as one of the four bids the GFLB will consider, Bally’s Bronx, would be in her home borough.

According to the Commission’s press release, Estrada was born in East Harlem and raised in Bayamón, Puerto Rico. She has lived in the Bronx for decades. Estrada launched a women’s designer boutique in 1972 at the age of 19. She later founded a clothing manufacturing company and was involved in the travel sector before moving into nonprofit leadership.

Who Sits on the GFLB

Estrada joins:

• Vicki Been (Chair) – NYU law professor, former NYC deputy mayor for housing and economic development.
• Terryl Brown – Vice President and General Counsel at St. John’s University.
• Marion Phillips III – Senior Vice President for community development and diversity at U.S. News & World Report.
• Greg Reimers – Retired real estate finance executive.

According to GFLB’s website, members must have at least 10 years of fiscal expertise in fields like real estate, accounting, or economics. Additionally, they must not have any financial ties to casino bidders.

How Will GFLB Judge the Applications?

The GFLB will score bids across four categories:

• Economic activity and business development – 70%
• Local impact and siting – 10%
• Workforce enhancement – 10%
• Diversity – 10%

Applicants must also meet several baseline requirements before their bids are even reviewed:

“An applicant must … prove they have acquired public support via approval of the applicable Community Advisory Committee, prove compliance and approval with all required State and local zoning requirements, [and] pay a $1 million application fee to the Gaming Commission.”

According to GFLB’s website, the Economic Activity score includes “capital investment … maximizing revenues for the state and localities … highest number of quality jobs … experience in developing and operating a quality gaming facility … speed-to-market … [and] ability to fully finance the gaming facility.”

The Local Impact component examines “mitigating potential impacts on host and nearby municipalities.” Additionally, the Board will explore how the applications partner with and promote local businesses and entertainment venues.

Workforce Enhancement factors include training programs, hiring practices, career paths, union agreements, and even sustainability elements such as LEED certification and energy efficiency.

The Diversity category requires plans for the participation of minorities, women, and veterans in ownership, contracting, and workforce development.

Applicants must submit updated tax-rate scenarios, revenue models, and independent market studies by October 15, 2025. The rules specify:

“An applicant may propose a tax rate on gross gaming revenue … so long as the tax rate is at least 25% for slot gross gaming revenue and 10% for gross gaming revenue from all other sources.”

Commission’s Final Certification

The GFLB is scheduled to announce its recommendations by December 1. Then, the NYSGC will certify final licenses by December 31.

Each permit requires a $500 million fee and a minimum capital investment of $500 million. The requirements could yield up to $1.5 billion in upfront revenue for the state. All projects have pledged much higher investment. From the four in contention, Metropolitan Park is the biggest investment, valued at $8 billion. Meanwhile, the smallest, MGM Empire City, is a $2.3 billion investment.

But while the GFLB will make the recommendation on which projects receive a license, the final decision lies with the NYSGC. The Commission must certify that applicants meet statutory requirements. Those include capital investment, licensing fees, compliance with building codes, diversity hiring goals, community mitigation plans, and problem gambling programs.

O’Dwyer has previously stated that the law does not require the Commission to issue all three licenses. He reiterated that in the September 30 meeting. According to the NYSGC Chair, if fewer than three applicants meet the criteria, the Commission will issue fewer licenses or possibly none.

Regardless, with Estrada’s appointment, the GFLB is now fully staffed to decide which projects will possibly reshape New York’s gambling landscape.