State Law, not Racing Commission Rule.
Nebraska is a very conservative State as far as gambling goes. They have shot down Instant Racing, and ADWs. I was shocked they allowed Keno at the tracks, but that's about as far as they are going to let it get I'm afraid. Meanwhile all the gambling money goes to the casino in Council Bluffs.
I have been a part of the startup of Canterbury Park (twice), Prairie Meadows, Will Rogers Downs, and Colonial Downs. Have also worked on license applications for others. I did the start-up of AmericaTab from just a phone room, to making it one of the largest ADWs by the time I left, and consulted with Churchill on the startup of TwinSpires.
I have a lot of experience in start-ups.
Best advice I have for you after going through all of those. Don't do it.
Well, unless Georgia finally passes parimutuel. Atlanta would be the only market I would even attempt to build a new racetrack in now.