HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: CS/HB 1245 Veterinary Professional Associates
SPONSOR(S): Regulatory Reform & Economic Development Subcommittee, Killebrew and others
TIED BILLS: IDEN./SIM. BILLS: SB 1038
REFERENCE ACTION ANALYST STAFF DIRECTOR or
BUDGET/POLICY CHIEF
1) Regulatory Reform & Economic Development 14 Y, 0 N, As CS Phelps Anstead
Subcommittee
2) Commerce Committee 17 Y, 0 N Phelps Hamon
SUMMARY ANALYSIS
In Florida, the practice of “veterinary medicine” means the diagnosis of medical conditions of animals, and the
prescribing or administering of medicine and treatment to animals for the prevention, cure, or relief of a wound,
fracture, bodily injury, or disease. Veterinarians are regulated by the Board of Veterinary Medicine (Board) in
the Department of Business and Professional Regulation (DBPR) pursuant to ch. 474, F.S., relating to
veterinary medical practice (practice act).
Currently, there are approximately 13,000 veterinarians in the state of Florida. Some estimates indicate that 70
percent of Florida households own a pet, meaning that there may be at least five million pets in Florida. Many
experts believe there are not enough veterinarians to handle the growing pet population in the state.
A veterinary professional health care provider, which is a similar position to the human medical profession's
physician assistant (PA), is not currently authorized in the veterinary practice act.
The bill creates the title “veterinary professional associate” and allows such individuals who have obtained this
title, working under the supervision of a veterinarian, to practice veterinary medicine on a limited basis, as
follows:
Allows the title "veterinary professional associate" to be used only by an individual who has
successfully completed an approved program.
Unless otherwise prohibited by federal or state law, authorizes a veterinary professional associate to
practice veterinary medicine, while working under the supervision of a Florida licensed veterinarian.
Prohibits a veterinary professional associate from:
o Prescribing medicinal drugs or controlled substances.
o Except for sterilizations or dental surgeries, performing a surgical procedure.
Makes supervising veterinarians using a veterinary professional associate liable for any acts or
omissions of the veterinary professional associate acting under the veterinarian's supervision and
control.
The bill provides an effective date of July 1, 2024.
This docum ent does not reflect the intent or official position of the bill sponsor or House of Representatives .
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DATE: 2/15/2024
FULL ANALYSIS
I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Current Situation
Practice of Veterinary Medicine
The Board of Veterinary Medicine (Board) in the Department of Business and Professional Regulation
(DBPR) implements the provisions of ch. 474, F.S., relating to veterinary medical practice (practice
act). The purpose of the practice act is to ensure that every veterinarian practicing in this state meets
minimum requirements for safe practices to protect public health and safety. 1
A “veterinarian” is a health care practitioner licensed by the Board to engage in the practice of
veterinary medicine in Florida2 and they are subject to disciplinary action from the Board for various
violations of the practice act.3
The practice of “veterinary medicine” is the diagnosis of medical conditions of animals, and the
prescribing or administering of medicine and treatment to animals for the prevention, cure, or relief of a
wound, fracture, bodily injury, or disease, or holding oneself out as performing any of these functions. 4
Veterinary medicine includes, with respect to animals: 5
Surgery;
Acupuncture;
Obstetrics;
Dentistry;
Physical therapy;
Radiology;
Theriogenology (reproductive medicine); and
Other branches or specialties of veterinary medicine.
The practice act does not apply to the following categories of persons:
Veterinary aides, nurses, laboratory technicians, preceptors, 6 or other employees of a licensed
veterinarian, who administer medication or provide help or support under the responsible
supervision7 of a licensed veterinarian;
Certain non-Florida licensed veterinarians who are consulting upon request of a Florida-licensed
veterinarian on the treatment of a specific animal or on the treatment on a specific case of the
animals of a single owner.
Faculty veterinarians when they have assigned teaching duties at accredited 8 institutions;
Certain graduated intern/resident veterinarians of accredited institutions;
Certain students in a school or college of veterinary medicine who perform assigned duties by
an instructor or work as preceptors;
1 S. 474.201, F.S.
2
S. 474.202(11), F.S.
3 Ss. 474.213 & 474.214, F.S.
4 See s. 474.202(9), F.S. Also included is the determination of the health, fitness, or soundness of an animal, and the performance of
any manual procedure for the diagnosis or treatment of pregnancy or fertility or infertility of animals.
5 See s. 474.202(13), F.S. Section 474.202(1), F.S., defines “animal” as “any mammal other than a human being or any bird,
amphibian, fish, or reptile, wild or domestic, living or dead.”
6 A preceptor is a skilled practitioner or faculty member who directs, teaches, supervises, and evalua tes students in a clinical setting to
allow practical experience with patients. See also https://www.merriam -webster.com/dictionary/preceptor#medicalDictionary (last visited
Jan. 16, 2024).
7 The term “responsible supervision” is defined in s. 474.202(10), F.S., as the “control, direction, and regulation by a licensed doctor of
veterinary medicine of the duties involving veterinary services” delegated to unlicensed p ersonnel.
8 Ss. 474.203(1)-(2), F.S., provide that accreditation of a school or college must be granted by the American Veterinary Medical
Association (AVMA) Council on Education, or the AVMA Commission for Foreign Veterinary Graduates.
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Certain doctors of veterinary medicine employed by a state agency or the United States
Government;
Persons or their employees caring for the persons’ own animals, as well as certain part-time or
temporary employees, or independent contractors, who are hired by an owner to help with herd
management and animal husbandry tasks; and
Certain entities or persons 9 that conduct experiments and scientific research on animals as part
of the development of pharmaceuticals, biologicals, serums, or treatment methods of treatment
or techniques to diagnose or treatment of human ailments, or in the study and development of
methods and techniques applicable to the practice of veterinary medicine. 10
Any permanent or mobile establishment where a licensed veterinarian practices must have a premises
permit issued by DBPR.11 Each person to whom a veterinary license or premises permit is issued must
conspicuously display such document in her or his office, place of business, or place of employment in
a permanent or mobile veterinary establishment or clinic. 12
By virtue of accepting a license to practice veterinary medicine in Florida, a veterinarian consents to:
Render a handwriting sample to an agent of the department and, further, to have waived any
objections to its use as evidence against her or him.
Waive the confidentiality and authorize the preparation and release of medical reports
pertaining to the mental or physical condition of the licensee when the department has reason
to believe that a violation of this chapter has occurred and when the department issues an
order, based on the need for additional information, to produce such medical reports for the time
period relevant to the complaint.13
For Fiscal Year 2022-2023, there were 13,285 actively licensed veterinarians in Florida. DBPR
received 484 complaints, which resulted in 16 disciplinary actions.14
Immediate Supervision
The practice act defines “immediate supervision” to mean that a “licensed doctor of veterinary medicine
is on the premises whenever veterinary services are being provided.” 15
Veterinary tasks requiring immediate supervision include: 16
Administering anesthesia and tranquilization by a veterinary aide, nurse, laboratory technician,
intern, or other employee of a licensed veterinarian.
Administering certain vaccinations by a veterinary aide, nurse, technician, intern or other
employee of a licensed veterinarian which is not specifically prohibited.
The following tasks may be performed without the licensed veterinarian on the premises: 17
Administering medication and treatment, excluding vaccinations, as directed by the licensed
veterinarian; and
Obtaining samples and the performance of those diagnostic tests, including radiographs,
directed by the licensed veterinarian.
Veterinarian Shortage
9 See s. 474.203(6), F.S., which states that the exemption applies to “[s]tate agencies, accredited schools, institutions, foundations,
business corporations or associations, physicians licensed to practice medicine and surgery in all its branches, graduate doc tors of
veterinary medicine, or persons under the direct supervision thereof ....”
10 See s. 474.203, F.S.
11 S. 474.215(1), F.S.
12 S. 474.216, F.S.
13 S. 474.2185, F.S.
14 Department of Business and Professional Regulation, Division of Professions Annual Report Fiscal Year 2022-2023,
http://www.myfloridalicense.com/DBPR/os/documents/Division%20Annual%20Report%20FY%2022 -23.pdf (last visited Jan. 16, 2024).
15 S. 4764.202(5), F.S.
16 R. 61G18-17.005, F.A.C.
17 Id.
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According to a survey conducted by the American Pet Products Association (APPA), 70 percent of U.S.
households, or about 90.5 million families, own a pet. This is an increase from 56 percent of U.S.
households in 1988, and 67 percent in 2019.18 As a result, experts say there is a shortage of
veterinarians in the U.S., which is expected to result in the need for approximately 15,000 veterinarians
by the year 2030.19 A study from Banfield Pet Hospital reveals an estimated 75 million pets in the U.S.
may not have access to the veterinary care they need by 2030, with an important factor being a critical
shortage of veterinarians.20
The University of Florida’s Dean of the College of Veterinary Medicine, Dana Zimmel, has indicated
that there is a shortage of veterinarians in Florida, which in addition to pets has “1.7 million beef cattle
and dairy cows, more horses than Kentucky and an alarming decline of manatee.” The state’s only
veterinary medical college, the University of Florida, also reports that due to limited capacity, it must
turn away 1,500 qualified candidates a year.21
According to the American Veterinary Medical Association (AVMA), “conditions have pushed the idea
of a midlevel practitioner to the fore as veterinary practices have struggled to meet service demands.
This issue has been compounded by continued inefficiencies in practices as pandemic disruptions
persist and client expectations for availability and convenience. Inflation has also increased costs for
labor and for products such as medical equipment and medications, creating additional concern around
clients’ ability to afford needed care. Additionally, retention of veterinary practice staff members and
attrition from the profession are ongoing and increasing concerns.”22 The AVMA found that a midlevel
practitioner may not be the best option to address these concerns, and that “time and effort should be
spent on resources, tools, and programs designed to retain veterinarians and credentialed veterinary
technicians; further develop veterinary technician specialties; help veterinary practices operate at
optimum efficiency; and effectively collaborate—within practice teams and across the profession—to
meet clients’ needs for high-quality veterinary services.”23
However, according to a study conducted by the National Library of Medicine, “the projected shortage
of veterinarians has created a need to explore alternatives designed to meet society's future demands.
A veterinary professional health care provider, similar to the human medical profession's physician
assistant (PA), is one such alternative. It is suggested that perhaps veterinary professional associates,
modeled after PAs, could be employed to handle routine veterinary care and thereby allow
veterinarians additional time to focus on the more demanding and challenging aspects of veterinary
medicine. Perhaps a team approach, similar to the physician/PA team, could help the field of veterinary
medicine to better serve both clients and patients. As veterinary medicine directs its attention toward
the new challenges on the horizon, creative solutions will be needed. Perhaps some variation of a
veterinary professional associate is worthy of future discussion.” 24
Human PAs
18
Insurance Information Institute, Facts + Statistics: Pet Ownership and Insurance, https://www.iii.org/fact-statistic/facts-statistics-pet-
ownership-and-insurance#:~:text=Seventy%20percent%20of%20U.S.%20households,and%2067%20percent%20in%202019 . (last
visited Jan. 16, 2024).
19 Spectrum News 13, Mob ile ‘ElleVet’ clinic helps relieve veterinarian shortage,
https://www.mynews13.com/fl/orlando/news/2023/02/03/the-ellevet-project-
#:~:text=%E2%80%94%20Experts%20say%20there's%20a%20shortage,States%20may%20not%20get%20care . (last visited Jan. 16,
2024).
20 Banfield Pet Hospital, 75 million pets may not have access to veterinary care b y 2030, New Banfield® study finds,
https://www.banfield.com/en/about-banfield/newsroom/press-releases/2020/75-million-pets-may-not-have-access-to-veterinary (last
visited Jan. 16, 2024).
21 Dana Zimmel, Florida needs more veterinarians | Column, Tampa Bay Times (Jan. 3, 2022),
https://www.tampabay.com/opinion/2022/01/03/florida-needs-more-veterinarians-column/ (last visited Jan. 21, 2024).
22 American Veterinary Medical Association, AVMA News, Idea of midlevel practitioner rejected in favor of b etter support, engagement
of credentialed veterinary technicians (Jan. 10, 2023), https://www.avma.org/news/idea-midlevel-practitioner-rejected-favor-better-
support-engagement-credentialed-veterinary (last visited Jan. 16, 2024).
23 Id.
24 Lori Kogan, Sherry Stewart, Veterinary professional associates: does the profession's foresight include a mid-tier professional similar
to physician assistants?, National Library of Medicine (2009), https://pubmed.ncbi.nlm.nih.gov/19625672/ (last visited Jan. 16, 2024).
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According to the Mayo Clinic, PAs are “licensed medical professionals who hold an advanced degree
and are able to provide direct patient care. They work with patients of all ages in virtually all specialty
and primary care areas, diagnosing and treating common illnesses and working with minor procedures.
With an increasing shortage of health care providers, PAs are a critical part of today’s team-based
approach to health care. They increase access to quality health care for many populations and
communities. The specific duties of a PA are determined by their supervising physician and state law,
but they provide many of the same services as a primary care physician. They practice in every state
and in a wide variety of clinical settings and specialties.”25
In Florida, PAs are licensed medical professionals that are authorized to perform services delegated by
a supervising physician.26 PAs are regulated by the Florida Council on Physician Assistants (Council) in
conjunction with either the Board of Medicine for PAs licensed under ch. 458, F.S., or the Board of
Osteopathic Medicine for PAs licensed under ch. 459, F.S. During fiscal year 2022-2023, there were
11,504 actively licensed PAs in the state, and 1,471 initial PA licenses were issued by the Florida
Department of Health.27
Effect of the Bill
The bill creates the title “veterinary professional associate” and allows individuals working under the
supervision of a veterinarian to practice veterinary medicine on a limited basis, as follows:
Provides the following legislative findings:
the practice in this state of veterinary professional associates, with their
education, training, and experience in the field of veterinary medicine, will
provide increased efficiency of and access to high