Between 2023 and 2024, the 118th Congress passed just under 150 bills. Although that’s less than half enacted by the previous Congress, it’s still a sizable number of legislation and regulation changes to track. Many of them are unrelated or tangentially related to equine veterinary medicine, making it easy to overlook the importance of keeping pace with them all.
“It’s easy for us to go along our merry way and assume things aren’t happening to us fundamentally,” says Stacey Cordivano, DVM, owner of Clay Creek Equine Veterinary Services LLC and host of The Whole Veterinarian podcast. “I think we tend to think we’re insulated in such a small niche, but ultimately decisions are being made, whether it’s drugs or how we’re allowed to practice, that affect all veterinarians.”
She admits that before participating as a panelist on the American Association of Equine Practitioners’ (AAEP) Business News Hour during the organization’s annual convention, she did not follow legislative changes closely for at least the first decade of her career. Now, she believes it’s critical for veterinarians to follow proposed and enacted legislation.
“All these laws that come up really affect veterinarians and their clients,” says Eleanor Green, DVM, DACVIM, DABVP, founding dean of the Lyon College of Veterinary Medicine and senior advisor to the Animal Policy Group. “Veterinarians need to know, not only for themselves and their ability to practice, but they need to know so that they can guide their clients. You’ll be involved in things like animal cruelty, and there are laws that protect you if you turn someone in.”
Changes to laws around the use of controlled substances like gabapentin and xylazine are the most widely talked about. However, new regulations to the broader framework within which businesses operate might have a big impact on equine medicine. Failing to stay involved could put your practice at risk of facing fines for noncompliance and missed opportunities to advocate for or against specific issues. Here’s a look at recent and/or evolving regulations or laws to follow.
Reclassification of Xylazine and Gabapentin
One of the most widely known regulatory updates is the change to the classification of two drugs used nearly every day in equine veterinary medicine. In 2024, the House of Representatives passed the Combating Illicit Xylazine Act reclassifying xylazine to a schedule three controlled substance. While it’s now in the Senate, it’s unclear how that might affect veterinarians’ access to the drug for use in euthanasia solution and sedation cases.
“There is wording in the laws to protect current, legitimate use of the drug,” Cordivano says. “Currently, restrictions are going state by state, making it harder for some people to order than others, and the federal law would make it more uniform. If passed into legislation, veterinarians will have 60 days after enactment to comply with recordkeeping.”
The status of gabapentin is also changing. Eight states currently list the anti-inflammatory as a Schedule V controlled substance. In addition, Green notes that veterinarians should follow changing regulations around CBD products as states make individual decisions on how to classify them.
Federal Ban on Noncompete Clauses
Last year, the Federal Trade Commission proposed a nationwide ban on noncompete clauses found within employment agreements. While noncompetes are designed to protect a business’s proprietary information, they are highly restrictive. Some equine practitioners are leaving the industry because they feel trapped in a job. Cordivano can easily list at least 10 people she knows who have left equine veterinary medicine because of noncompete clauses.
“We should be moving away from trapping people in a job,” she says. “You can protect yourself in other ways like intellectual copyrights on your information.”
Mark L. Cushing, JD, founder and CEO of the Animal Policy Group, understands why some practice owners find noncompetes attractive. Practices have a significant investment in training someone for several years, and an individual might leave at a time when they are most productive for the practice. However, he argues that strict noncompetes can make it more difficult for practices to recruit.
“In a shortage environment where everybody is competing for the same veterinarians to join them, noncompetes can be decisive in turning somebody away from your offer,” he says. “If you can say, we won’t impose a noncompete, you can make an offer so much more attractive.”
Each year, the Animal Policy Group tracks issues in every state, every veterinary medicine board, and every pharmacy board across the country daily. Aside from pharmaceutical issues, noncompetes were the No. 1 topic states had an interest in, according to Cushing.
Colorado’s Approval of Midlevel Practitioners
Perhaps the most significant legislative development to watch is the passage of Colorado’s Proposition 129, which allows for the creation of “midlevel practitioners” in veterinary medicine. These individuals would be able to diagnose, treat, and perform surgery on animals with a master’s-level education, significantly less than the traditional four-year veterinary degree.
“I believe this is the first time that a change to those practice acts has been voted on by the public, and so that was a big deal in and of itself,” Cordivano says. “The training they proposed is utterly preposterous. It’s like 12 hours of hands-on training.”
The proposition was backed by private equity interests, leading many to believe the primary motivation was cost-savings rather than improved animal care, says Cordivano. The implications of this legislation are far-reaching, not only for the quality of care but also for the role of veterinary technicians.
“Ultimately, technicians who are already underutilized are still underutilized and underpaid, leading to like, no growth or job opportunities for them,” she says.
Licensure Laws
Traditional veterinary licensure has been issued state by state. Working across state lines without proper licensing can cost veterinarians their practice. The increasing frequency of catastrophic disasters are creating situations where veterinarians must have flexibility to help animals in crisis and deliver care.
“There are some laws that protect you if you’re able to help in disaster and emergency management, but you need to know those things,” Green says. “There’s been a move to having mobility among states that’s huge for veterinarians, and you should be involved in those discussions.”
Licensing for veterinarians is more restrictive than nearly every other profession. However, Cushing says discussion about reciprocal licensing is increasing. Specifically, he pointed to an item on the January 2025 AVMA Winter House of Delegates Meeting agenda seeking to simplify the licensure process. Doing so would follow the leadership of 18 states that allow veterinarians to practice without a state-specific license so long as the veterinarian has an accredited degree, passed the North American Veterinary Licensing Examination (NAVLE), and is in good standing with the state(s) in which they are licensed.
“We’ll never have national licensure because the federal government has let professions across the board from architecture to law, medical, nursing, etc. be up to the states,” Cushing says. “But states can follow the lead of other states, and it’s worth highlighting.”
Recognizing licensure across state lines can be a solution to address the equine veterinarian shortage crisis.
“I just had a friend who’s not even going to practice anymore because they moved and didn’t want to go through (licensing in a new state),” Green says. “It’s too hard of a process to go through, so they’re not going to practice. Here we have a shortage, and we’re making it hard for those who want to practice.”
Telemedicine and the Veterinarian-Client-Patient Relationship
Many advancements in human medicine eventually make their way into equine medicine. But for telemedicine and the veterinarian-client-patient relationship (VCPR), equine medicine has lagged in adoption.
“If you look at the human side, 97% of physicians now use telemedicine in some form or another, and it’s increased by a tremendous amount,” Green says. “It’s improved access to care in rural communities. Over 75% of physicians say telemedicine provides better care and that it’s equivalent to in-person care, or even better, with over 80% patient satisfaction. And (human telemedicine) allows virtual patient-doctor relationship.”
In 2020, Cushing and Green founded the Veterinary Virtual Care Association to advocate for the expansion of telemedicine and VCPR in equine medicine. Currently, about one-third of Americans live in jurisdictions where VCPRs can be created by telemedicine, according to Cushing.
“It works for people, and nobody has made a credible argument that the care of animals is that different,” Cushing says. “It works in all 50 states for people and addresses the convenience issue, the cost issue, and the transportation issue. (Some horse owners) live many hours from a practitioner. Do we really think it’s better for a horse to get no care when a licensed veterinarian can provide care in a real-time video call?”
While acceptance of telemedicine is increasing, virtual VCPRs continue to face obstacles, including its lack of recognition by the FDA. For example, Colorado House Bill 24-1048 went into immediate effect in 2024, requiring an in-person visit to establish a VCPR, which could then continue virtually.
“(Virtual VCPR) is something to follow, and it’s going to be super state dependent,” Cordivano says.
Microchipping
While microchipping is not currently as much of an issue in the horse industry as it is with other livestock, Green says it is an issue veterinarians should be aware of and participate in shaping the policies around.
“There’s a lot of question about whether microchipping should become required or optional for horses, and veterinarians need to be involved in that conversation,” Green says.
Horse Protection Act
While as of press time, the implementation of the Horse Protection Act (HPA) has been delayed by the new administration, it is another issue veterinarians should follow. In 2024, USDA’s Animal and Plant Health Inspection Service (APHIS) amended the HPA to permanently end soring in Tennessee Walking Horses. The language within the HPA and its reach into the horse industry beyond the gaited horse industry has prompted further discussion.
It’s especially important for equine veterinarians with show horses of all disciplines in their practice so they can be aware of how the law, if and when enacted, impacts recordkeeping and other client-patient interactions.
“As veterinarians, we all care about animal welfare, and they need to keep marching ahead to prevent soring,” Green says. “But we need to make sure that it protects the horses that need to be protected and doesn’t harm those that are already being protected.”
Stay Informed, Get Involved
Legislative changes can have an impact on your veterinary practice, your clients, and the care you provide horses. It’s essential to stay informed about changing laws and regulations to safeguard your practice to avoid infractions or fines. Equally important, understanding what’s included in proposed legislation enables you to advocate for or against specific policies you believe can enhance or harm equine veterinary care.
The Business News Hour held during the Annual AAEP Convention covers the latest legislative updates and is available virtually for veterinarians unable to attend in person. Cordivano recommends attending the VCL Conference to introduce yourself to a different aspect of veterinary medicine, specifically the governmental side.
“If we don’t pay any attention, we have zero say over potentially major things that will change the way we practice,” she adds.
Related Reading
- Business Briefs: Important Equine Veterinary Industry Statistics
- Responding to Client Complaints and Avoiding Malpractice in Equine Practice
- The Business of Practice: Catching Up With 2025 AAEP President Dr. Tracy Turner
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