Two members of the Anne Arundel County Council - councilmen Jamie Benoit, D-Crownsville, and Josh Cohen, D-Annapolis - already have come out against the referendum, and two more - councilmen Ed Middlebrooks, R-Severn and Ed Reilly, R-Crofton- said this week they would be less likely to support a zoning change to allow slots if county residents vote "no."

That opens the door for a potential majority on the seven-member council to try and block the zoning for a slots facility. Any zoning bill would need four of the seven council members to support it in order to become law, unless it was introduced as emergency legislation, which would need five.

"I would want to see how (the referendum) did in Anne Arundel County," said Mr. Middlebrooks, who at the moment does not have strong feelings either way on slots. "If Anne Arundel County voters vote against it, I doubt I would support (a zoning change) at that point."

This is significant because of a quirk in the slots legislation, which aims to authorize up to 15,000 slots in the state at five locations.

Within the referendum proposal, any slots facility has to "comply with all applicable planning and zoning laws of the local jurisdiction." In Anne Arundel, that means the County Council would have to specifically pass zoning legislation allowing up to 4,750 machines within two miles of Route 295, even if the referendum is passed, according to county officials.

County Executive John R. Leopold, who has historically been opposed to the expansion of gambling, said he will take no action on the slots issue until after the November vote. He declined to say what he would do based on either outcome.

"We ought to let the voice of the people be heard," Mr. Leopold said. "I'm not going to speculate."

The current county code does not specifically mention slots as a permitted use, said Tracie Reynolds, a county spokesman.

"If it is not expressly stated that (slots) are permitted, then it is not a permitted use in our code," Ms. Reynolds said.

The county quandary shows how parochial interests were not entirely ended when the General Assembly finalized the slots locations and completed its work on the bills during last fall's special session.

The most immediate concern for local officials, however, is how to deal with the dollars that would be lost if slots are not approved, said Rick Abbruzzese, a spokesman for Gov. Martin O'Malley.

By fiscal 2012, slots would create more than $1 billion of gross revenue, according to the state's Department of Legislative Services. Almost $500 million would be set aside for education, and about $10 million of impact grants would be sent to the county, which is facing a $250 million cumulative deficit over the next five years.

If the referendum fails, or if Anne Arundel refuses to create the zoning for a slots facility, the state will have to find another way to get the money, Mr. Abbruzzese said, in either cuts or taxes.

"They are going to decide what their preference is," he said. "Those gaps in the budget are going to need to be made up."

Some members of the council, including councilmen Daryl Jones, D-Severn, and Ron Dillon, R-Pasadena, said they are not opposed to the idea of slots but will await the referendum results.

"We have to wait and see what happens," Mr. Jones said. "I don't have a problem really with the concept of slots."

Councilwoman Cathy Vitale, R-Severna Park, said she is going to need more information on slots before taking a position. Whether she votes for zoning changes will depend on the specifics of a bill.

"There are a lot of legal questions that are going to have to be answered," she said.

But if Anne Arundel voters approve the referendum in large numbers, council opposition would be muted. Although Mr. Reilly opposes slots on the grounds of social ills associated with gambling, he acknowledged he would have to take into account the wishes of the voters he represents.

"I'm a non-slots guy but I will be tempered by the referendum vote of my constituents," he said. "If I'm a true representative … there are times I have to put my personal opinion aside."

Mr. Benoit, however, who represents the Laurel area that would get slots, said he is staunchly opposed to anything that would open the door for expanded gambling, including any zoning bill. Likewise, Mr. Cohen said he will he vote against any legislation that would allow slots and increase burdens on police, social services and infrastructure.

"I view slots as an unfunded mandate," he said.

Communities such as Odenton, Laurel and Severn are trying to become a "hot spot" for the high-tech and defense industries, Mr. Benoit said, and the infrastructure needed to support a slots facility could easily outweigh whatever revenue it brings into the county.

"I personally have higher hopes for our community than being a racing and casino mecca," he said. "It sends the wrong message to the region."