by Gregg Anthony Masters, MPH **
The news is monumental for the cannabis space and public health writ large. Here’s what actually happened today (Dec 18, 2025) and what the Trump cannabis Executive Order (EO) actually does – plus the 280E implications and the road ahead.
An interesting ‘sidebar‘ came via CMS Administrator Oz who indicated beginning Q2 2026 (April), CBD will be available for ‘free’ via physician order from ACOs, noting as well Medicare Advantage plans are ‘evaluating’ whether to include CBD in their supplemental benefits offerings to seniors as well.
We do live in interesting times!
Considering the relative underreporting of this signature event in the cannabis space, I’ve compiled a news summary and ‘explainer’ for your consideration with an AI assist in research and claim validation.
The news in plain English
President Trump signed an EO titled “Increasing Medical Marijuana and Cannabidiol Research” directing the Attorney General to complete the already-started federal rulemaking to move marijuana from Schedule I → Schedule III “in the most expeditious manner” (while staying within the Controlled Substances Act process). Source: The Washington Post+3The White House+3The White House+3
This is significant because it’s a White House-level push to break a procedural logjam: the Schedule III proposal has been pending since DOJ’s 2024 proposed rule and was sitting in the administrative hearing phase that got postponed. Source: Federal Register+2DEA+2
The actual EO (what it says)
From the EO text: Source: The White House
- Directs the Attorney General to “take all necessary steps” to complete the Schedule III rescheduling rulemaking as fast as possible, consistent with 21 U.S.C. § 811 (the CSA scheduling process).
- Directs White House legislative staff to work with Congress on updating the statutory definition around hemp-derived cannabinoid products (esp. “full-spectrum CBD”) and building a regulatory framework (e.g., THC-per-serving concepts).
- Directs HHS/FDA/CMS/NIH to develop research methods/models using real-world evidence to improve evidence and standards of care around medical marijuana/CBD.
- Includes standard language that it doesn’t create enforceable rights and must be implemented consistent with law/appropriations.
Important nuance: The EO is best read as an acceleration directive, not a magic wand that unilaterally “changes the schedule tomorrow.” The CSA still routes the change through the administrative rulemaking record. Source: The White House+2Federal Register+2
Does this eliminate 280E – and who benefits?
What 280E actually says
IRC § 280E disallows deductions/credits for businesses “trafficking in controlled substances”, “within the meaning of schedule I and II” of the CSA. This otherwise normal deduction of routine operating expenses has put cannabis dispensary operators (multi and single state) as a distinct competitive disadvantage. Source: Legal Information Institute
The key implication
So, if marijuana is finalized as Schedule III, 280E no longer applies to marijuana trafficking (because 280E is keyed to Schedule I or II, not III). Source: Legal Information Institute
Medical only, or recreational too?
Not medical-only. If marijuana is Schedule III federally, the 280E relief would generally benefit state-legal operators regardless of “medical vs adult-use” label, because 280E’s trigger is the schedule, not whether a state calls a sale medical or recreational. Source: Legal Information Institute
But: rescheduling does not federally legalize adult-use commerce; it just removes this specific tax penalty once the rule is final/effective. Source: The Washington Post+1
Timing: when would 280E relief actually start?
Not on EO day. It starts only after a final rule is issued and becomes effective (typically after Federal Register publication with an effective date). Until then, operators are still under the current Schedule I framework for federal tax purposes.
Why the EO matters (even though it’s “only” rescheduling)
If Schedule III is finalized, the high-impact wins are:
- 280E relief → ordinary business deductions return (rent, payroll, marketing, etc.), which can materially change cash flow and valuation math for operators. Source: Legal Information Institute+1
- Research friction decreases vs Schedule I, potentially expanding clinical research and product development pathways. Source: The White House+1
- It’s a federal acknowledgement of medical use, aligning more with current state realities—without ending federal control. Source: The White House+1
What it does not do
Even with Schedule III (and certainly with just the EO):
- No federal legalization of recreational cannabis.
- No interstate commerce greenlight for state markets.
- No automatic SAFE/SAFER banking fix (banks still weigh federal illegality/risk; legislation is the clean solution).
- No de-scheduling (removal from the CSA schedules entirely).
- No broad criminal justice reform baked in (Editor’s note: some say the absence of AG Bondi at signing ceremony is a curious absence?).
(Those limits are why some coverage frames this as big-but-not-the-finish-line.) Source: AP News+1
What’s next (near-term roadmap)
- DEA/DOJ completes the administrative process: resolving the stalled posture and moving to a final agency action. The rule has been pending since DOJ’s May 2024 proposed rule, and the hearing phase was postponed. Source: Federal Register+2DEA+2
- Final rule published (Federal Register) + effective date.
- Litigation risk / judicial review: major federal changes like this often draw court challenges, which can affect timing and certainty.
- Parallel track: Congress (banking, taxation, states’ framework, descheduling bills) if political will exists.
Road to full de-scheduling (the real “endgame”)
De-scheduling generally requires Congressional action (amending the CSA) or a far more sweeping administrative move than the current Schedule III track – and it also runs into broader regulatory architecture questions (FDA framework, commerce, taxation, public safety, treaties). Practically, most paths to true normalization run through Congress.
Bottom-line?
The December 18, 2025 signing ceremony delivered a headline that – depending on where you sit – reads like long-overdue common sense, political triangulation, or a regulatory Rorschach test: President Donald J. Trump signed an executive order titled “Increasing Medical Marijuana and Cannabidiol Research.” Source: The White House
Here’s the crucial nuance right up front: the Executive Order (EO) does not itself reschedule marijuana. Under federal law, rescheduling happens through a formal rulemaking process anchored in the Controlled Substances Act (CSA) – not by presidential decree. What the EO does is direct the Attorney General to “take all necessary steps” to complete the ongoing rulemaking to move marijuana from Schedule I to Schedule III “in the most expeditious manner in accordance with Federal law,” explicitly referencing 21 U.S.C. § 811. Source: The White House+1
If you’re running a state-legal cannabis business – or tracking one from the investor side – the part that lands like a thunderclap is the tax angle: Schedule III would typically remove cannabis from the scope of IRS Code Section 280E, the federal provision that disallows ordinary business deductions for “trafficking” in Schedule I or II controlled substances. Source: Legal Information Institute+1
Let’s unpack what’s actually in the EO, why it matters, what it likely means for 280E (medical and adult-use), and what “next” looks like on the road to full de-scheduling.
What the Executive Order actually says (and does)
The EO frames federal cannabis policy as lagging behind widespread medical use and clinical reality—particularly around chronic pain, seniors, and veterans. It argues that Schedule I status has “impeded research” and left patients and clinicians without adequate guidance. Source: The White House
The operational heart of the order is Section 2, which sets out three main directives:
- Expedite Schedule III rescheduling (Attorney General).
The EO instructs the Attorney General to move the rescheduling rulemaking forward “in the most expeditious manner” under the CSA, citing 21 U.S.C. § 811 – the statute that governs adding, removing, or transferring substances between schedules through rulemaking and hearings. Source: The White House+1
- Push a legislative/regulatory pathway for hemp-derived cannabinoids and full-spectrum CBD (White House Deputy Chief of Staff + Congress).
The EO calls for working with Congress to update the statutory definition and establish a regulatory framework, including THC-per-serving limits and ratio considerations. Source: The White House+1
- Accelerate research methods and “real-world evidence” (HHS, FDA, CMS, NIH).
It directs federal health agencies to develop research methods—explicitly including real-world evidence—to inform standards of care and improve lawful access to hemp-derived cannabinoid products. Source: The White House+1
The EO also explicitly references the existing federal rescheduling process already in motion: DOJ issued a proposed rule in May 2024; the proposal drew nearly 43,000 public comments; and it is “awaiting an administrative law hearing.” Source: The White House+1
That matters because it signals the administration isn’t “starting a new process.” It’s trying to finish an already-started one – faster.
The rescheduling process is rulemaking on the record – no shortcuts
Under the CSA, the Attorney General (delegated to DEA) can transfer a drug between schedules via rulemaking, and the process includes notice, comment, and an opportunity for a hearing. Source: U.S. Code+1
The DOJ/DEA proposed rule published in May 2024 is the backbone: it proposes moving marijuana from Schedule I to Schedule III, relying on HHS’s medical/scientific assessment (which the proposal describes as deserving significant deference). Source: Federal Register+1
Also important: the proposed rule is unusually candid about what rescheduling does not do.
- It does not federally legalize marijuana.
- Criminal prohibitions under the CSA still apply.
- Products containing “marijuana” under the CSA remain subject to the Federal Food, Drug, and Cosmetic Act (FDCA), including FDA approval requirements for lawful interstate commerce absent an IND framework. Source: Federal Register
So: Schedule III is a big change – but it’s not “legalization,” and it’s not “de-scheduling.”
The 280E question: medical only, or does adult-use benefit too?
You asked the question that matters to operators’ cash flow:
Does this eliminate 280E for medical dispensaries only, or do recreational dispensaries benefit too?
If marijuana is finalized into Schedule III, the benefit is not limited to “medical-only” dispensaries. The reason is simple: 280E is keyed to Schedule I and II substances – not to whether a state labels cannabis “medical” vs “adult-use.” Source: Legal Information Institute+1
The statutory text of 26 U.S.C. § 280E denies deductions/credits for a trade or business that traffics in controlled substances “within the meaning of schedule I and II” that are prohibited by federal law or the law of the state in which the business operates. Source: Legal Information Institute
That means:
- Schedule I/II status is the trigger.
- If marijuana moves to Schedule III, it is no longer a Schedule I/II substance.
- Therefore, 280E generally should no longer apply to businesses “trafficking” in marijuana—even though marijuana would still be federally controlled and the CSA would still criminalize unauthorized distribution. (280E doesn’t care about “illegality” in the abstract; it cares about illegality involving Schedule I/II.) Source: Legal Information Institute+1
The Congressional Research Service (CRS) describes 280E as denying deductions and credits for trafficking in Schedule I/II substances and explains why it has applied to state-legal marijuana businesses while marijuana remains Schedule I. Source: Congress.gov
Bottom line: Both medical and adult-use cannabis operators would generally benefit from the end of 280E disallowance once – and only once – marijuana is officially moved out of Schedule I/II. (I’m emphasizing “once” because the EO alone does not change the tax treatment today.) Source: The White House+1
Still true even after Schedule III: cannabis businesses would still face complex federal-state contradictions (and likely continued banking and interstate-commerce constraints), but the tax math changes materially when ordinary and necessary business expenses become deductible again. The Federal Register notice itself flags that 280E is a major economic consideration in the rule’s impact analysis. Source: Federal Register
Quick note (not tax advice): even under 280E, businesses have typically been able to reduce gross receipts by cost of goods sold (COGS) – the real pain is losing ordinary deductions (rent, payroll, marketing, admin, security, etc.). That’s why Schedule III is viewed as an immediate profitability lever.
Why this EO is significant (even though it doesn’t “legalize”)
1) It tightens the federal narrative around “medical use” and “research”
The EO is explicitly framed around medical marijuana and CBD research, and it leans into the health system’s reality: chronic pain is widespread (CDC reports 24.3% of U.S. adults had chronic pain in 2023). Source: CDC
That framing matters because re-scheduling requires findings about medical use and abuse potential under the CSA’s criteria. Source: U.S. Code+1
2) It puts “real-world evidence” on the table
Traditional cannabis research has been constrained for decades by Schedule I barriers and supply bottlenecks. The EO’s push toward real-world evidence isn’t just a research preference—it’s an implicit acknowledgment that millions of Americans are already using these products, and clinicians need better data to counsel patients.
The National Academies’ landmark 2017 report found substantial evidence supporting cannabinoids’ effectiveness for chronic pain in adults, while also documenting risks and research gaps. Source: National Academies+1
3) It spotlights CBD product integrity and safet
CBD is widely used, but product labeling accuracy and contamination remain uneven across an under-regulated marketplace. Peer-reviewed analyses have found widespread mislabeling in commercially available CBD products. Source: PMC+1
The EO’s CBD provisions—especially talk of THC-per-serving limits and a clearer regulatory framework—signal a federal attempt to reduce harm from today’s “Wild West” consumer cannabinoid market. Source: The White House+1
4) It is (also) an economic policy move – via 280E
Let’s be honest: the fastest, most measurable impact of Schedule III isn’t a new randomized trial. It’s a cleaner P&L.
News coverage today highlights that rescheduling could deliver meaningful tax relief by ending 280E’s punitive treatment for cannabis businesses. Source: AP News
What happens next: the near-term roadmap
Here’s the “what’s next” sequence in plain English:
- Administrative law hearing + record building
The EO itself says the proposed rule is awaiting an administrative law hearing. Source: The White House+1
- DEA decision + final rule
After the hearing process and review of the administrative record, DEA can publish a final rule (or withdraw/modify the proposal). The Federal Register proposal underscores that rescheduling must happen through formal rulemaking on the record. Source: Federal Register
- Effective date + downstream compliance
If finalized, marijuana would become Schedule III under federal schedules. At that point, the 280E issue changes in a very practical way. Source: Legal Information Institute+1
- Legal challenges are likely
Given the stakes and polarization, expect litigation – either challenging the procedure, the scientific basis, or treaty compliance logic. The proposed rule itself spends notable space discussing how Schedule III could be made consistent with U.S. international treaty obligations through additional controls. Source: Federal Register
And after Schedule III: the longer road to “full de-scheduling”
If Schedule III is the on-ramp, de-scheduling is the freeway interchange that still requires legislative engineering.
De-scheduling can happen in two broad ways:
Path A: Administrative (harder)
In theory, DEA could initiate a rulemaking to remove marijuana from control. In practice, de-scheduling raises deeper questions – especially around international treaty obligations and how the U.S. would structure controls absent CSA scheduling. The DOJ proposal already signals treaty constraints are non-trivial even for Schedule III. Source: Federal Register
Path B: Congressional (more direct, still politically difficult)
Congress can amend the CSA, create a federal regulatory framework for cannabis, address interstate commerce, taxation, public health guardrails, advertising, product standards, and banking. In other words: Congress can do what patchwork state markets can’t create coherence.
Even if you’re “team de-schedule,” Schedule III may be the pragmatic bridge: it normalizes medical research pathways and reduces the tax distortion that has functionally subsidized the illicit market by kneecapping compliant operators.
The public health lens (because this is ACOwatch)
As a public health guy, I can’t help noticing what this EO is – and isn’t.
It is not an endorsement of “everyone should use cannabis.” It’s an administrative acknowledgment that millions already do, many for pain and symptom management, and our federal research posture has been out of step with reality. Source: The White House+1
The evidence base is evolving and nuanced. For chronic pain, data suggest cannabinoids may provide small to modest improvements for some patients and some conditions, with meaningful variability and real adverse effect considerations. Source: BMJ Open+1
For ACOs and value-based care organizations, the more interesting question is less “culture war” and more:
Can better evidence, tighter product standards, and rational tax policy reduce harm, improve outcomes, and shrink the gap between what patients do and what clinicians can responsibly guide?
That’s the promise the EO gestures toward – if the bureaucracy follows through and if Congress eventually does its job.
Key takeaways for operators, investors, and clinicians
- The EO is real and specific. It directs the AG to expedite Schedule III rulemaking and pushes federal agencies toward research and cannabinoid regulatory clarity. Source: The White House+1
- It does not reschedule marijuana by itself. Rescheduling still requires DEA rulemaking, hearing processes, and final publication. U.S. Code+1
- If Schedule III is finalized, 280E relief is not “medical-only.” 280E is tied to Schedule I/II, not to state program labels. Adult-use businesses would generally benefit too. Source: Legal Information Institute+1
- Schedule III is not legalization. CSA prohibitions still apply; FDCA constraints still matter; and federal-state contradictions don’t vanish overnight. Source: Federal Register
- De-scheduling is a bigger lift. Expect Schedule III (if finalized) to be a waypoint—not the destination.
**Disclosure and guardrails
This post is compiled by Gregg Anthony Masters, MPH, with an AI assist in policy research, analysis and public health commentary with authoritative third-party support for or challenges to unsubstantiated claims. It is not legal, tax, or investment advice. If you operate in the space, talk to counsel and a tax professional who lives and breathes cannabis compliance.