Debates have been waged on whether the Peng-Hu Islands off the west coast of Taiwan should allow the establishment of casinos. In many polls, approval slightly prevailed over opposition. The Offshore Islands Development Act 10-2 was amended on January 12th, 2009, which gives local public of Peng-Hu special power to make a collective decision based on a referendum. The Act stipulates that the referendum result holds even the voter turnout is below 50%, a requirement under the current Referendum Act. A local referendum was held and the public chose not to approve the casino policy. In order to examine the case of the Peng-Hu casino debate, this research is based on conception of public participation and resource mobilization, and adopts the methods of documentary analysis, historical context and in-depth interview. The analysis focuses on anti-gambling group, and the research tries to understand the roles and strategies of anti-gambling group in the process of policy change. The research finds that resources are scarce for civic advocacy, which much overlaps between different groups. The anti-gambling groups appear to be flexible and have local characters. The research concludes with suggestions for the government authority and industries.