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June 12, 2025 Legislative Update

Legislative Update

June 12, 2025

Jan Lanier, JD, RN

 

Budget nears  the  finish line

The state’s biennial budget proposal  (HB 96) is closing in on the deadline for finalizing and passing the bill, June 30^th.  Watching the legislative process unfold around this critically important piece of legislation has been challenging to say the least  because of all the many  moving parts (including uncertainty at the federal level)  that continue to be unresolved even at this late date.

Despite all the challenges, the full senate  passed the amended substitute bill without democrats’ support  on June 11^th.  None of the 10 amendments suggested by democrats prior to the floor vote were accepted by the majority party.  Republican Senator Louis Blessing (R Colerain Twp.)  joined the democrats in opposition.

The house later  agreed not to concur with the senate-passed version of the bill.  Former house speaker Rep. Jason Stephens (R- Kitts Hill)  was the only vote  (1-84) supporting concurrence in the house.  The inevitable conference committee will begin its work next week.  Senate president Rob McColley (Napoleon) named finance committee chair Sen. Jerry Cirino (Kirtland) and committee  vice chair Sen. Brian Chavez (R-Marietta) to the conference committee.  Minority leader Sen. Nicki Antonio (D-Lakewood) named Sen. Paula Hicks-Hudson (D-Toledo) ranking member on the finance committee as the senate democrat conferee.   The house appointees have yet to be officially announced.  Each chamber names three of its  members: two  republicans and one democrat to the committee that will make the ultimate decisions regarding the content of the final bill. Once the six conferees issue their report, the house and senate members can vote only to accept or reject the report. If accepted, the agreed upon bill goes to the governor for signature with the bill becoming effective immediately. The governor can also line-item veto particular provisions in the bill (without vetoing the entire bill) with those vetoes being subject to override by  house and senate action that is supported by a super majority in both chambers.

Because the state cannot deficit spend, every cut in revenues, regardless of the source, means an alternative funding mechanism must be found to meet the budgeted expenditures.  The senate version of the bill  includes a proposal that would establish a flat tax rate (2.75% for all income levels) beginning in 2026 that likely will result in a $1.1 billion revenue deficit according to the state’s legislative service commission.  At the same time, state lawmakers and Ohio citizens are bemoaning the exorbitant  increase in property taxes affecting  many homeowners and business that has led to a possible citizens’ ballot initiative  that would abolish the property tax all together, thereby eliminating or eroding yet another revenue source. Lawmakers have limited options at their disposal for filling in the funding gaps including cutting expenditures/programs and services, adding or increasing  user fees, licensure fees, sales taxes, and more.  Where to cut, what to cut and where to find the needed revenue have led to heated disputes around governmental priorities that are being played out through the over 5,000-page budget bill.

Needless to say,  political parties are divided about the impact of the proposed tax changes and where the cuts need to be made to balance the budget.  Senator Kent Smith (D-Euclid) said this is the first time in more than two decades that a budget bill did not receive a single democratic vote.  Sen Bill Demora (D-Columbus) said the bill creates a series of losers including public schools, libraries, college students, people struggling with mental health and more.  (Source: Gongwer-Ohio (June 11, 2025) Senate passes budget on party lines, prepares for conference. Gongwer News Service)

According to Sen. Cirino the senate provided an additional $1 billion compared to FY 25 for public schools while maintaining the Fair Schools Funding Plan  and adding a performance component and an enrollment growth supplement. Democrats disagree noting that the appropriation does not keep pace with the current cost to educate children.  By that measure schools are under-funded by $2.75 billion and lower wealth districts are  the hardest hit.

The budget also offers property tax relief through changes to various types of levies and greater authority for county budget commissions.

Libraries continue to face predicted funding shortfalls in the senate version of the budget.  Ohio has helped fund its libraries since 1933; however, the extent of that assistance has varied going from 2.22% of the state’s general tax revenue in 2008 to the current level of 1.7%.  The House version of HB 96 eliminated the percentage and instead set a line-item amount  to be determined every two years.  The proposed line-item amount was increased by the house following feedback from Ohioans, but the percentage basis for the calculation was eliminated. (Source: The Wake Up (June 11, 2025) retrieved from

https://link.cleveland.com/view/658af931187133a6060e9d37nyhsf.rln/cc7573e3  June 11, 2025).

 

“Senate finance committee chair,  Sen Jerry Cirino (R- Kirtland) said the 1% decrease in fiscal year (FY) 26 and 1.5 in FY 27 to the state’s general revenue fund will ‘position us to effectively manage our programs and gives us the ability to adjust to changes that may occur when we get changes put on us by the federal government.’   Senate president Rob McColley (Napoleon) said the  ‘cuts reflect program trimmings’”.  (Source: Gongwer-Ohio (June 3, 2025). Senate leaders split on merits of reduced operating budget. Gongwer News Service)

 

Following is a partial list of the sub bill’s provisions as adopted by the Senate Finance Committee that appear to remain in the senate-passed version:

• Although the state’s Fair Funding Plan remains for public schools, it will be more difficult for a school district to pass local levies and possibly to manage their budgets
• A Medicaid waiver that would continue allowing children up to age 3 to retain  Medicaid coverage is eliminated thereby affecting their access to health care
• Funding for overdose prevention is cut by $2.2 million
• Lead abatement programs are funded at $250,000/year rather than $8 million/year
• Ohio foodbanks are underfunded by spending $7.5 million less/year
• The house bill’s coverage of the governor’s Childcare Choice Vouchers for those with incomes up to 200% of the federal poverty level is retained, but payment rates may not be sufficient to attract providers. Budget language also excludes Step up to Quality enhancements that incentivize quality childcare
• House expansion of educational vouchers continues, including making younger children eligible for the Peterson special education voucher and $5 million more than the house  proposal is included for these programs
• Trigger language in the house-passed bill is maintained that  would eliminate Ohio’s Medicaid expansion program if the federal government decreases its contribution regardless of the amount of the decrease.  (Currently, the federal government pays 90% of the total with participating states only responsible for the remaining 10% of Medicaid expenditures for the affected  population
• Other separate provisions allow the state to pause, eliminate, or change other funds related to grants if congress adjusts or eliminates funding for that particular program
• House cuts to the public library fund of more than 8 %, which is 3% less than the governor proposed, is continued The house proposal to eliminate the funding  for libraries based on a percentage of the general revenue fund and instead allow future general assemblies to determine the level of support based on the funds available is maintained
• Funding for the H²OHIO program is cut by $120 million and only 55.5% of the recommended allocation proposed by the governor is included.

(Source: Stein, B. (June 4, 2025) State fumbles budget. Policy Matters retrieved from https://policymattersohio.org/news/2025/06/04/senate-fumbles-budget/ on June 9, 2025.)

 

Speaker Huffman said possible changes to Medicaid, the flat tax and school funding will be discussed by the conference committee, so nothing is yet set in stone when it comes to the “winners” and “losers” in the budget .

(Source: Gongwer-Ohio (June 11, 2025) Senate passes budget on party lines, prepares for conference Gongwer News Service.)

 

Other legislative  activity

While it may seem like the budget is soaking up all the oxygen at the statehouse, many other issues have been considered by numerous standing committees in both chambers.

HB 12/SB 209

HB 12, the off-label prescription bill ANA-Ohio has been following had six hearings before the house health committee.  The committee  accepted two substitute versions of the bill sponsored by Reps. Jennifer Gross (R-West Chester) and DJ Swearingen (R-Huron)  but has not voted the bill out of committee yet.  While the sub bill language is not readily available, the comparison analysis of the bills’ changes  produced by the Legislative Service Commission indicates there have been no adjustments to the immunity provisions in the later versions  that address nurses’ concerns. In its June 11^th committee hearing the committee adopted an amendment suggested by executive director of the pharmacy association David Burke that too did not address the immunity issue.

A senate version of the bill (SB 209)  sponsored by Sens. Al Cutrona (R-Canfield) and Michele Reynolds (R-Canal Winchester) purports to mirror the latest sub version of the house  bill, and it too does not provide nurse immunity.  Cutrona, in his remarks upon introducing the senate version said, “ the bill addresses the concerns the senate had  during the last general assembly and that’s been taken into consideration” by the bills’ sponsors.  (Source: Gongwer-Ohio (June 6, 2025) Senators drop companion to off label prescribing bill. Gongwer News Service.) His remarks could indicate that the current version of one or the other of the bills could find its way into the budget given that the issues raised about its predecessor (HB 73) in the previous general assembly have been addressed.

ANA-Ohio once again communicated nurses’ concerns to the house sponsor and select members of the house and senate health committees and cited several examples as the basis for our concerns.  We continue to monitor this bill.

HB 52 sponsored by Rep. Kellie Deeter (R-Norwalk) dealing with nurse anesthetists’ practice had several hearings before the house health committee.  Rep. Deeter, a CRNA, provided an overview of Ohio’s regulation of CRNAs and why the current bill is necessary.  She emphasized that “the bill does not expand the current statute it merely modernizes  and strengthens it.”  (Source: Gongwer-Ohio (May 27, 2025) Panel begins review of latest nurse anesthetists’ bill. Gongwer News Service). The committee accepted a substitute bill to begin the proceedings and went on to have a lively discussion about the role and practice of CRNAs in general.  Historically, istoriclly, similar legislation became the subject of numerous proposals in previous general assemblies  in response to a 2013 attorney general’s opinion regarding the practice of CRNAs with respect to ordering the administration of medications post operatively. The opinion resulted in logistical changes to how CRNAs  practiced. The question leading to the AG opinion was triggered by healthcare officials concerned about Ohio’s statutory language addressing CRNA’s overall authority, not patient complaints or safety issues.  The bill remains in the health committee; however, unlike previous legislation on this topic, the Society of Anesthesiologists is taking a neutral position.

State response to voter-initiated legalization of recreational  marijuana

SB 56 sponsored by Sen. Steve Huffman (R-Tipp City) underwent another round of changes by the house judiciary committee  when the committee accepted a substitute bill submitted by Rep. Brian Stewart (R-Ashville).  Rep, Stewart has his own bill (HB 160) that would also change the statute.    The current sub bill  incorporates some of what Stewart included in HB 160.  The sub bill does the following:

• Allows the division of marijuana control to increase the maximum potency of the products by rule
• Allows for the sale of low-dose THC-infused beverages in retail locations
• Permits the sharing of marijuana on private property
• Creates a limited exception to the ban on public consumption for outdoor concert venues
• Clarifies the 10% tax rate applies to intoxicating hemp products
• Removes a provision requiring a mandatory three-day jail sentence for the use of marijuana by a passenger in a vehicle
• Increases the mandatory space between dispensaries from ½ mile to one mile
• Boosts the number of allowed dispensaries from 350 to 400
• Provides local governments that host dispensaries with a 25% share of tax revenue over a seven-year period

(Source: Gongwer-Ohio (May 28, 2025) Senate marijuana bill changes fail to minimize concerns. Gongwer News Service).

More amendments to the current sub bill are expected dealing with the percentage share of tax revenue going to  local governments and  how long  that share is authorized plus other clarifying language.

HB 141 sponsored by Reps. Cindy Abrams (R-Harrison) and Rachel Baker (D-Cincinnati) would establish prescribed pediatric extended care centers (PECCs) also called medical day cares.  These facilities provide children with complex needs medical care and early childhood education.  The bill  had several hearings before the house health committee but ran into a buzzsaw when republicans on the committee insisted the bill include a parental  work requirement in order to quality to participate in these centers.  Rep. Baker told the committee the latest amendment addresses these concerns by having the daycare centers verify the parents’ working status and prioritizing enrollment based on work status and medical need.  Baker believed the committee’s push to add the work requirement was a result of the larger discussion about Medicaid work requirements in general.  PECCs would be a Medicaid program option  with the participants relying on home and community-based waivers  to define and finance the services they receive.  Their eligibility for  Medicaid was not a result of Ohio’s acceptance of Medicaid expansion offered by the federal government in conjunction with enactment of the affordable care act.  (Source: Gongwer-Ohio (May 21, 2025) Work component added to medical day care bill. Gongwer News Service).

HB 153 Sponsored by Sens. Theresa  Gavarone (R-Bowling Green) and  Andrew Brenner (R-Powell)  had opponent testimony before the senate general government committee.  The bill would make changes to how Ohioans vote by requiring proof of citizenship when registering to vote or when updating their voter registration. It also eliminates ballot drop boxes and makes changes to the requirements for individuals circulating petitions and requires cancellation of an individual’s registration if he or she casts a provisional ballot that is ultimately rejected.   Some of the objections were purported to represent the concerns of county board of elections officials  who are reeling from the changes already imposed by the legislature.  According to Kelly Dufour of Common Cause Ohio, “Since last spring lawmakers have amended 73 election-related sections of the revised code, created 11 new sections, and removed one.  SB 153 would revise another 46 sections and establish three new ones.”  (Source: Gongwer-Ohio ( May 27, 2025) Critics argue voting bill likely to disenfranchise citizens.  Gongwer News Service).

One  witness said the bill did not go far enough to prevent non-citizens from voting and another precinct official said he has not heard a convincing rationale for moving this bill or its companion (HB 233) forward.  Another witness pointed out that there are many reasons a provisional ballot might be rejected, many of them related to technical transposition of  numbers.  Individuals have four days to correct mistakes.  Another witness noted that the number of Ohioans who have a more difficult time voting due to this bill is much higher than the number of non-citizens who may attempt to cast a ballot.   Sen. Gavarone countered that “one case of voter fraud is too many.”

New bills:

HB 281 had its first hearing before the house public safety committee on June 11^th.  The bill, sponsored by Rep. Josh Williams (R-Sylvania Twp.), was introduced May 21^st.   It  requires each hospital in Ohio to permit federal law enforcement officers and agents of the U.S Department of Homeland Security to enter a hospital to perform their duties including arresting an individual pursuant to a warrant, interviewing an individual, or collecting evidence.  Hospital employees are required to “facilitate” this access, and  the hospital governing board must adopt written policies that establish standards and procedures to be followed  in order to comply with the bill.  Hospitals that violate these requirements face loss of grant dollars and their Medicaid provider agreements.   Williams characterized Medicaid coverage as a privilege; therefore, hospitals need to comply with Ohio law to be able to continue to operate in the state.

When questioned by committee members, Rep. Williams said it “was not his intention to have individuals removed from hospitals if they required immediate medical care”.  He also admitted he did not reach out to interested parties before introducing the bill because such meetings do not influence the policies that come out of his office. (Source: Gongwer-Ohio (June 11, 2025) Immigration measures draw democrats’ skepticism. Gongwer News Service)

HB 319 sponsored by Rep. Tom Young (R-Washington Twp) addresses possible revisions to the state’s process for subsidizing medical education at its public universities.  The house workforce and higher education committee conducted an informal hearing in early June.  The fund supports the training of medical students in their third and fourth years.  Called the “Clinical Teaching Subsidy Reform Act”, the proposal would allocate 90% of the subsidy proportionally among the state’s medical schools based on the number of full-time equivalent students, while 10% would be based on school performance regarding education and retention of students in Ohio.  The current formula that is over 40 years old allots 52% of the subsidy amount to OSU and UC while these schools educate only 34% of the students enrolled in the state’s public medical schools. Under the bill prioritized funding would go to schools with students who are  Ohio residents, enter residency programs in Ohio and practice in the state for three years after graduation. Not surprisingly, the deans from the various state medical  schools have different opinions regarding the merits of the proposal.

HB 271 is  sponsored by Reps. Jean Schmidt (R-Loveland) and Josh Williams (R-Sylvania Twp). Rep. Schmidt  described the bill as building on HB 371 (enacted in 2022) that required health insurance plans to cover supplemental screenings for women with dense breast tissue.  The current bill bars insurers from imposing cost-sharing requirements on covered breast or cervical cancer screenings.  Many women recommended for additional screening cannot afford the co-pays, which means they forego, or delay, recommended screenings, often to their detriment.  This language has been adopted by 30 states, and there is little evidence that there has been an impact on premium costs, noted Dan Hurley representing  the Susan G. Komen foundation.  (Source: Gongwer-Ohio (May 27, 2025) Expanded access to breast cancer screenings sought.  Gongwer News Service).

HB 276 and SB 198 are  companion bills that prohibit drug manufacturers from placing unnecessary restrictions on shipments of 340B drugs to community health centers and their pharmacy partners.  (Source: Gongwer-Ohio (May 23, 2025) Drug manufacturer restrictions targeted in legislation. Gongwer News Service, Columbus).  The house bill is sponsored by Reps. Marilyn John (R-Richland County) and Adam Holmes (R-Nashport).  It was referred to the house insurance committee where it has had one hearing.  The senate bill was introduced by Sen. Kyle Koehler (R-Springfield) and referred to the senate health committee.  That committee has not yet scheduled the bill for a hearing.  The drugs at issue (so-called 340B drugs) are the subject of federal legislation that requires drug manufacturers to enter into an agreement with the Health & Human Services (HHS) Secretary  in exchange for having their drugs covered by Medicare and Medicaid.  The manufacturer agrees to front end discounts on covered outpatient drugs purchased by safety net organizations (covered entities such as Federally Qualified Health Centers (FQHCs).  The covered entitles must reinvest their savings into additional patient services.  Program specifics are left to the states to manage, and Ohio has  not developed specific guidelines  for the distribution and delivery of these drugs.  These bills prohibit drug manufacturers from refusing to ship medically necessary medications to a covered entity.  (Source: Rep. Marilyn John, sponsor testimony retrieved from https://ohiohouse.gov/legislation/136/hb276 on June 11, 2025.) The issues of 340B drugs became a topic of discussion during HB 96 hearings due to a proposal by Gov. Mike DeWine in his executive budget. He proposed allowing the Department of Medicaid to be the beneficiary of the 340B savings, thereby increasing revenue for the Medicaid program overall, which would help draw additional federal dollars to Ohio.  That proposal was removed by the house in its version of the budget ; however,  the senate Medicaid committee chair, Sen. Mark Romanchuk (R-Ontario) supported reinsertion of DeWine’s proposal provided FQHCs are held harmless.  The Ohio Department of Medicaid supports Romanchuk’s compromise.

HB 299 sponsored by Reps. Brian Lorenz (R-Powell)  and Kellie Deeter (R-Norwalk) would require individuals who circulate statewide initiative petitions (those proposing a statute or a constitutional amendment)  to be licensed by the secretary of state’s office. The bill was referred to the house general government committee where sponsor testimony was heard on May 28th.  According to that testimony, “Ohio’s laws should be shaped by Ohioans. Busing in temporary workers from across the country raises serious concerns about the integrity, transparency, and accountability of the initiative process.  Pursuant to the bill, the would-be petition circulator must submit a notarized application to the secretary of state’s office.  The application asks the individual’s name, date of birth, and current address. That office has ten days in which to issue the license that is valid for 24 months after issuance. Renewal or updating the license requires the same process as the initial application.  The secretary of state can deny or revoke the license if the holder is determined to be unqualified.   At this point, there is no charge for a license.  This bill merits further scrutiny.  What may seem like an annoyance rather than a major policy change could expand into much more when coupled with other seemingly harmless  bills that, when combined,  erode voters’ rights  to make their voices heard.

HB 272 sponsored by Reps. Justin Pizzulli (R-Franklin Furnace) &  Monica Robb Blasdel (R-Columbiana) addresses several environmental issues including the repeal of a state level mandate requiring all communities to fluoridate their water supply.   Dubbed the PURE LIFE Act ( Protecting Utility Resources for Enhanced Living, Improved Food and Environment Act), the bill  was referred to the house general government committee where sponsor testimony was heard June 10^th.  Rep. Pizzulli described the four distinct sections of the bill. One bans harmful food additives, another restricts PFASs (forever chemicals) in consumer products, the third restores local control over water fluoridation, and the final section prohibits cloud seeding.  According to Pizzulli, Ohio is one of 13 states with a state-level mandate relative to the addition of fluoride to a community’s water supply.  Another 37 take the approach set out in the bill that would allow communities to make their own decisions regarding the use of fluoride.  (Source: Gongwer-Ohio (June 10, 2025) Republicans look to repeal statewide fluoride mandate. Gongwer News Service.)

Issue 1 again!

There have been rumblings that republican leaders are once again contemplating another attempt to make amending the Ohio Constitution more difficult for citizens.  The proposal to require a citizen-initiated amendment to be approved only if it passes by at least 60% of the vote was challenged in 2023 and defeated by voters.  Currently, a simple majority is needed for passage.  Fast forward to 2025 and the same players are complaining that “special interest groups” are pushing their agendas thus leading to an out-of-control number of  amendment proposals.  Current Secretary of State Frank LaRose cited two new issues seeking a place on the ballot in November—one would abolish property taxes and the other would end qualified immunity for police and other government agencies.  Supporters of these initiatives are currently seeking the thousands of signatures of eligible voters that are  required to actually secure a ballot position.  They have until early July to submit the signatures.  According to LaRose, “Legislation should be done by the legislature.”  House speaker Matt Huffman (Lima) agrees with him saying,  “Good government folks want it raised to 60% ,and I think it should be.”  Former house speaker Rep. Jason Stevens (R-Kitts Hill) disagrees saying the “legislature works for the people.  Changing the current method of holding the legislature accountable when it acts or does not act would require consensus across the political spectrum as to what those rules should be.”  (Source: Trau, M. (May 27, 2025)  Another fight over majority rule in Ohio Republican leaders float the idea. Ohio Capital Journal, Columbus).

 

AND… yes. It’s map drawing time once again

The Ohio Constitution gives Ohio’s general assembly until September 30^th to pass a bipartisan congressional redistricting plan.  If the general assembly cannot meet this expectation the Redistricting Commission would be called upon (highly likely given that the state legislature plans to take a break until mid-September, which significantly limits the time that can be devoted to this task).  If the Commission cannot complete the process, it would be returned to the legislature with  a final deadline for a new map being  November 30^th  .  This last resort requires  a simple majority vote by the general assembly and would establish another temporary map that is good for four-years rather than until 2031 should the Commission meet its October 31^st deadline. Doing that requires bipartisan support within the commission, however.  (The Commission is made up of the governor, auditor, secretary of state, an appointee named by the senate president, an appointee named by the speaker of the house, an appointee named by the senate minority leader, and an appointee named by the house minority leader. Obviously, the current commission is heavily weighted in the republicans’ favor).

According to house speaker Matt Huffman, discussions will begin this summer making it possible to meet the September deadline.  House minority leader Rep. Allison Russo said her caucus is open to a status quo plan so voters can avoid the upheaval of redistricting.  However, the democrats are not likely to support a plan that would further expand republican’s current 10-5 advantage in Ohio’s U.S. House delegation. Re-election bids by U.S. Reps Marcy Kaptur, Emilia Sykes, and Greg Landsman that are likely to be challenged by republicans and any map acceptable to the democrats cannot disadvantage these democrat  incumbents. (Source: Gongwer-Ohio (June 9, 2025) Bipartisan redistricting plan possible, house leaders suggest. Gongwer News Service).

Personnel issues

House Minority Leader, Rep. Allison Russo (Upper Arlington) announced she is stepping down from her leadership position at the end of June.  She will continue to serve as the state representative for the 7^th Ohio house district through December 2026 when, due to term limits, she will no longer be eligible to run for  the Ohio house.  Her replacement  on the leadership team will be selected the last week in June.  Russo has not signaled yet what she plans to do in the future with respect to running for public office.

Don Jones (Freemont), former representative for the 95^th house district,  vacated that position to take a job with the Trump administration as state director of the USDA’s Farm Service Agency.  His replacement will be named prior to the start of the general assembly’s summer recess.  A screening committee chaired by Rep. Gayle Manning (R-North Ridgeville) will be considering resumes from several individuals who are interested in being named to the vacant seat including county commissioners Heidi Maxwell Morgan County and Ty Moore Noble County.  Also on the list is Tyce Patt a regional representative for U.S. Sen. Bernie Moreno. Jeffrey Carpenter,  Kamron Chervenak, Edward Eberhart, Patrick Kovacs, and Jonathan Robe round out the list of candidates.  The house republican caucus will vote on Jones’ replacement.  (Source: Gongwer-Ohio (June 9, 2025) County Commissioners among applicants to fill house vacancy. Gongwer News Service.)