Not sure how it works in other states but in Ohio, voters can vote in changes directly to the state constitution. Thus the constitution is huge. I'm not sure what it takes to get on the ballot but it sounds like a way for special interests to just bypass the legislative process if they can get voter approval. There were 4 casinos permitted in the Ohio constitution change across 2 owners, but no provision for competitors to come in, it's just these 4 until another amendment.