Idaho Code § 54-2506
It shall be the duty of the commission, as soon as possible after its organization, to prepare and promulgate a complete set of rules and regulations to govern race meets and the pari-mutuel system. It shall be the duty of each person holding a license under the authority of the act to comply with this act and with all the rules and regulations promulgated and all orders issued by the commission.
It shall be unlawful for any person, except race meet licensees coming within the provisions of section 54-2508, Idaho Code, to participate, directly or indirectly, in any race meet without first securing and having in full force and effect, a license therefor from the commission. The license fee for such license shall be set by the commission and shall be paid to the commission.
The commission shall, by rule and regulation, determine which persons participating, directly or indirectly, in race meets shall require licenses.
Idaho Code § 54-2506