Cannabis legalization largely stalled out in 2024 amid cross-chamber disagreements in state legislatures and ballot measure letdowns on Election Day.
Nebraska was the lone state to advance reform last year via overwhelming support behind a pair of medical cannabis legalization measures in November, yet litigation attempting to prevent a program rollout remains pending.
So, where does that leave reform in 2025? Despite federal prohibition, 24 states have legalized adult-use cannabis, and 39 states have legalized medical cannabis, leaving additional reform opportunities on the table for more than half the nation.
Here at Cannabis Business Times, we’re continuing to read the nation’s palm to determine the chances of changing fortunes for 12 states in our 2025 legalization forecast. This list includes eight states that may finally budge on medical cannabis reform and four that could transition to adult-use legalization, including Pennsylvania, New Hampshire, Hawaii and Virginia (sales).
In addition, eight of these states have Republican trifectas in their legislative chambers and governorships, including New Hampshire, which could become the first state in the nation to legalize adult-use cannabis via a GOP-controlled legislature.
Hawaii, meanwhile, is the last state in the country with a Democratic trifecta absent of adult-use legalization, yet Pennsylvania, with a divided government, could beat the Aloha State to the punch.
Notably, none of these 12 states provide statewide citizen-initiated ballot measures, meaning it’s up to elected officials to align policies with the will of their electorates. However, the appetite for reform is largely growing among lawmakers across both aisles throughout the nation.
The biggest hurdle in 2025 for cannabis legalization revolves around top lawmakers who hold the keys to floor debates in their legislative chambers.
Although the top politician in the nation, President Donald Trump, indicated along his campaign trail in September 2024 that he supported relisting cannabis to a Schedule III drug and backed a legalization measure in his home state of Florida, this stance alone likely isn’t enough to move the needle on state-level policies for our nation’s legalization holdouts.
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Likely
Pennsylvania
“We’re losing out on revenue that’s going to other states instead of helping us right here,” Shapiro said. “And so, I ask you to come together and send to my desk a bill that legalizes adult-use cannabis, expunges the records of people who have been convicted for nonviolent possession of small amounts of marijuana, and a bill that sets reasonable regulations, protects public safety, and gives communities that suffered from the criminalization of cannabis an opportunity to succeed.”
As Shapiro awaits state lawmakers to act, one top GOP lawmaker thinks the governor should be the one taking a bigger role on the issue.
“If [Shapiro] wants something done, he needs to lead on it,” Pennsylvania Senate President Pro Tempore Kim Ward said following the budget address. “He can’t throw an idea out there, which he did last year, and say, ‘Let the Legislature figure it out; I’ll sign it.’”
In the interim, Pennsylvanians 21 and older can now drive across the border to spend their tax dollars in Ohio, New York, New Jersey and Maryland.
So, will Pennsylvania catch up with its neighbors in 2025?
Despite Shapiro’s support for reform, adult-use legalization faces uncertainty in the Keystone State’s divided government, where Democrats control a one-seat majority in the House and Republicans control a 28-22 upper hand in the Senate. To date, no state has legalized adult-use cannabis via a divided legislature.
But the bipartisan appetite is present in the commonwealth.
Near the end of last year’s session, Pennsylvania Reps. Aaron Kaufer, R-Luzerne, and Emily Kinkead, D-Allegheny, filed legislation with 15 co-sponsors to legalize adult-use cannabis in the commonwealth. State Sens. Sharif Street, D-Philadelphia, and Dan Laughlin, R-Erie, also sponsored a bipartisan legalization bill last session, and in previous years before that.
Cannabis reform in the Senate largely depends upon a Republican to champion legislation, and Laughlin has taken on that role. Laughlin and Street circulated a bipartisan co-sponsorship memo on Feb. 25 for their forthcoming 2025 adult-use legalization bill.
“Legalizing marijuana enables the state to regulate the industry, ensuring that products are tested for safety, purity, and potency,” they wrote. “This approach not only protects consumers but also combats the unregulated black market, where safety standards are nonexistent.”
The day after Shapiro’s budget address, however, Laughlin said the governor has yet to make a genuine effort to work with him or legislative leadership to get a bill passed.
“Simply projecting revenue without crafting a functional plan does nothing to move Pennsylvania forward,” Laughlin said, calling the governor’s proposed 26% effective tax rate on cannabis “excessive” and “counterproductive.”
Laughlin did vow to work with his colleagues on both sides of the aisle to draft a “responsible and effective legalization” plan for this session.
While Pennsylvania’s adult-use legalization chances largely depend upon bipartisan cooperation, an apparent hunger to keep up with its neighboring states lands the Keystone State in Cannabis Business Times’ “likely” to legalize forecast for 2025.
Wisconsin
Democratic Gov. Tony Evers has been an advocate for legalizing adult-use cannabis since taking office in 2019. Most recently, he included another proposal to legalize cannabis for those 21 and older in his executive budget released in February.
However, in 2024, Evers indicated a willingness to get on board with a more limited medical program should Republican lawmakers overcome their differences in the state Capitol.
While medical cannabis legalization appeared hopeful in 2024 for the Badger State, Assembly Speaker Rob Vos, R-Rochester, and Senate Majority Leader Devin LeMahieu, R-Oostburg, locked horns on a path forward, ultimately dealing reform a blow for the session.
Specifically, Vos backed legislation that called for state-run dispensaries, while LeMahieu called that approach a “nonstarter.” Neither leader was willing to budge.
That impasse, in part, prompted Evers to include another proposal in his 2025-27 biennial budget: to allow the people of Wisconsin to put citizen-initiated ballot measures and referendums before their voters. Currently, Wisconsin is one of 24 states without initiative or referendum processes.
“Republican lawmakers shouldn’t be able to ignore the will of the people and then prevent the people from having a voice when the Legislature fails to listen,” Evers said on Jan. 7. “That has to change.”
Evers pointed to a February 2024 survey conducted by Marquette Law School pollsters who found 86% of registered Wisconsin voters supported legalizing medical cannabis, including 78% of Republicans, while 63% of registered voters supported legalizing adult-use cannabis.
Although Senate President Mary Felzkowski, a Republican who sponsored medical cannabis legislation in previous sessions, told WisPolitics in December that Vos remained an “obstacle” to medical cannabis legalization heading into 2025, Wisconsin Republicans remain supportive of reform: It’s now a matter of compromising on specifics.
Notably, Senate Majority Leader Tyler August, R-Walworth, told Spectrum News in February that he’s “hopeful” lawmakers can deliver on cannabis reform.
“I don’t think anyone is naive enough to think that marijuana and THC products aren’t present in the state of Wisconsin when they are readily available over state lines, so I think we need to come to an answer on this,” he said.
Neighboring states Michigan, Illinois and Minnesota all have legalized adult-use cannabis.
While Republicans remain in control of the Wisconsin Legislature, Democrats flipped 10 seats in the Assembly and four in the Senate in November’s election, narrowing the GOP’s majorities to 54-45 and 18-15, respectively. This could spark greater support for a medical cannabis legalization proposal in 2025.
Wisconsin is one of eight states absent of a medical cannabis program—even a highly restrictive program such as in Texas, where THC is capped at 1%.
Maybe
New Hampshire
The bipartisan-backed legislation originated in the House, but Senate lawmakers passed an amended version of the bill to lower the possession limit, create a state-run “franchise model” for dispensaries and set THC limits for edibles, among other changes. The Senate voted, 14-10, for the amended bill, but the House rejected the changes.
The House appears to be back in the driver’s seat this year with three legalization bills on the table, including two from Democratic Rep. Jared Sullivan and another from Republican Rep. Kevin Verville.
Specifically, the House passed Verville’s legislation, House Bill 75, on Feb. 20. The least permissive of the three bills, H.B. 75 aims to legalize cannabis for those 21 years and older but would not establish a licensed market for commercial cultivation and dispensary sales. Also, the bill does not include language permitting adults to grow cannabis at home.
Offered by Sullivan, House Bill 186 would legalize cannabis for those 21 years and older and create a licensed, taxed and regulated market for commercial operators; while H.B. 198 would legalize cannabis for those 21 and older and allow for home grows, but the latter legislation would not establish a commercial market for cultivation and sales.
Although there is bicameral support for adult-use cannabis legalization in New Hampshire’s General Court, the Granite State gets the “maybe” to legalize nod from CBT in 2025 due to a change in governorship.
Republican Gov. Kelly Ayotte, who took executive office in January, said along her campaign trail that she opposed adult-use cannabis reform.
“One of the deep concerns I have about legalizing marijuana is the impact that marijuana has on youth mental health,” Ayotte said during a gubernatorial debate on New Hampshire Public Radio in October. “Also, I’m concerned about our quality of life when it comes to issues like road safety … and I have yet to meet someone in recovery who thinks we should legalize marijuana as we take on the challenges we have with addiction in the state.”
Meanwhile, New Hampshire House Majority Leader Jason Osborne, R-Auburn, told ABC affiliate WMUR last month that the legalization “ship has sailed” with New Hampshire’s change in governorship.
Osborne supported legalization in past sessions.
“We had an opportunity with the last governor to put that issue behind us, and we frankly blew it,” he said. “So, I don’t imagine coming back to that for another decade probably.”
South Carolina
State Sen. Tom Davis, R-Beaufort, reintroduced the Compassionate Care Act in January. The legislation, Senate Bill 53, aims to establish a licensed and regulated market for qualifying patients to purchase lab-tested cannabis dispensed by pharmacists.
However, the bill would require cannabis cardholders to have tightly defined relationships with their physicians to receive a diagnosis for one of the 12 qualifying conditions outlined in the bill. In addition, smoking cannabis and growing cannabis at home would be prohibited.
“It is a very conservative bill because that’s what South Carolinians want,” Davis told WSPA.
Davis, who is cosponsoring the 2025 bill with Sen. Stephen Goldfinch, R-Georgetown, sponsored similar legislation last session when, in February 2024, it passed in the Senate on a 24-19 vote before dying in the House committee process due to inaction.
An advocate for cannabis reform for more than a decade, Davis also sponsored a previous rendition of the Compassionate Care Act in 2022, when a Senate-passed version of the bill died on a procedural anomaly: It included a tax provision and revenue-raising bills must originate in the lower chamber under South Carolina law.
With this history of House lawmakers blocking the reform effort, South Carolina remains a firm “maybe” in 2025.
South Carolina is one of eight states absent of a medical cannabis program—even a highly restrictive program such as in Texas, where THC is capped at 1%.
To Watch
Hawaii
Hawaii lawmakers dealt House Bill 1246—to legalize adult-use cannabis for those 21 years and older and to set up a commercial marketplace—a defeat on Feb. 6, when Rep. Chris Todd, D-Hilo, introduced a motion on the House floor to recommit the legislation for next year.
“On this particular bill, it became clear that we did not have enough support to pass the measure in this session,” Todd told Honolulu’s Civil Beat following the voice vote to kill the bill until 2026.
However, adult-use cannabis legalization hopes are technically still alive with companion legislation in the upper chamber, Senate Bill 1613, which members of the Health and Human Services Committee and Judiciary Committee approved on Feb. 13.
The legislation was referred to the Senate Committee on Ways and Means and the Committee on Commerce and Consumer Protection, which were supposed to hold a public decision-making hearing on the bill on Feb. 26; however, the committees “deleted” the measure from the decision-making schedule two days before that hearing, leaving its progress uncertain.
Although the Hawaii Senate passed an adult-use legalization bill for the second straight year on a 19-6 vote in March 2024, the Hawaii House Finance Committee killed last year’s legislation when it refused to hold a hearing. Committee Chair Kyle T. Yamashita, D-Keahua, called the legalization attempt a “deeply divisive issue” at the time.
The people of Hawaii, however, want adult-use cannabis legalized, an issue that 58% of the state’s adults support, according to a late 2023 Hawai’i Perspectives poll conducted by Pacific Resource Partnership.
Currently, Hawaii is the lone state in the nation with a Democratic government trifecta and no adult-use cannabis program. Hawaii was the first state in the country to legalize medical cannabis via the legislative process in 2000.
Kansas
However, Republican Senate President Ty Masterson didn’t call the bill for a vote in his chamber that year, and follow-up legislative attempts the past three years stalled out.
Specifically, the Kansas Senate Federal and State Affairs Committee tabled debate on legislation last biennial session, when Masterson called it a “nonstarter.” Masterson said he’s willing to entertain medical cannabis legalization, but “it has to protect our children,” adding that what he’s open to is “some type of pilot program or something that is controlled to the point you can test it,” KSNT reported.
After last year’s session adjourned, lawmakers formed an interim committee on medical cannabis, meeting for two days in October to allow state officials, law enforcement, business leaders and medical professionals to weigh in on the policy issue. At the conclusion, the committee rejected a motion that Sen. Cindy Holscher, D-Overland Park, made to endorse legalization heading into the 2025 session.
“I just feel like we keep circling here by doing interim committees and never really moving forward on the issue,” Holscher said. “We keep rehashing this information. We keep hearing the same debunked theories over and over.”
With the 2025 session now underway, Holscher unsuccessfully attempted on Feb. 19 to attach an amendment—to include “medical cannabis” among treatments allowed—to a bill focused on expanding terminally ill patient access to experimental drugs, the Kansas Reflector reported.
Although the Kansas Senate has yet to bite on a medical cannabis bill, 73% of Kansas voters support allowing qualifying patients to have access to medical cannabis, according to an Emerson College Polling survey released in October 2024.
As one of 24 states that don’t provide for citizen-initiated ballot measures, Kansas remains a state “to watch” in 2025.
North Carolina
However, both times the bills fell on deaf ears in the lower chamber, where former House Speaker Tim Moore said there wasn’t enough Republican support to call a vote. Under Moore’s tutelage, no bill could advance to the House floor unless it had majority support among his caucus: Bills that had 100% Democratic support and 49% Republic support didn’t pass his test.
Although North Carolina House members elected a new speaker last month for the first time in 10 years, the leadership change isn’t necessarily a positive sign for cannabis reform: Rep. Destin Hall, R-Caldwell, said in 2020 that North Carolina should not legalize medical cannabis, and he now holds the keys to the floor.
Medical cannabis reform continues to face a more welcoming pathway in the upper chamber, where Senate President Pro Tempore Phil Berger, R-Guilford, indicated an openness to legalization as long as legislation addresses concerns about unregulated THC products derived from hemp, Queen City News reported on Jan. 29.
“It seems to me that there’s an opportunity there to address the medical marijuana issue and address that issue at some point during the session,” he told the news outlet.
Senate Minority Leader Sydney Batch, D-Wake, said there are two nonpartisan issues that the General Assembly could act on legalizing: medical cannabis and casinos.
The policy issue is also nonpartisan among North Carolina voters, 70% of whom support medical cannabis legalization, according to a September 2024 WRAL News poll. More recently, Meredith College pollsters found that 71% of North Carolina voters supported medical cannabis legalization, according to a survey they conducted in February 2024.
As of mid-February, no bills focused on cannabis legalization reform had been filed in the North Carolina General Assembly, where the legislative session runs through July 31.
As North Carolina remains one of eight states in the nation absent of a medical cannabis program—even a highly restrictive program such as in Texas, where THC is capped at 1%—the state’s 21-and-older population can legally purchase adult-use cannabis on a native reservation in the western part of the state. The Eastern Band of Cherokee Indians launched adult-use sales in September 2024 in the roughly 57,000-acre Qualla Boundary.
Texas
As a result, intoxicating products containing hemp-derived cannabinoids have exploded into a multibillion-dollar market in Texas, sparking Lt. Gov. Dan Patrick’s attempt to ban THC altogether through Senate Bill 3.
While 55% of Texans support the lieutenant governor’s proposed legislation to prohibit unregulated THC sales by unlicensed retailers, greater majorities of Texans support medical cannabis legalization (79%) and adult-use cannabis legalization (62%), according to a Feb. 4 report released by the University of Houston’s Hobby School of Public Affairs.
With Texas’ 2025 legislative session underway—Texas is one of four states where legislators only meet in odd-numbered years—the Lone Star State now has a limited window for its elected officials to more closely align the state’s cannabis laws with the viewpoint of their electorate.
Passed in 2015, the Compassionate Use Program was initially limited to 0.5% THC and only for patients with intractable epilepsy, but state lawmakers expanded the program in 2019 and 2021, increasing the THC limit and the number of qualifying conditions to nine.
State lawmakers have introduced several cannabis-related bills this session, including one from Rep. Jessica Gonzalez, D-Dallas, that intends to legalize adult-use cannabis for those 21 years and older.
However, bills to more broadly legalizer medical cannabis offer a greater likelihood for passage: José Menéndez, D-San Antonio, filed Senate Bill 170; Sen. Carol Alvarado, D-Houston, filed S.B. 259; and Rep. Ron Reynolds, D-Fort Bend, filed House Bill 1504.
Overall, more than 25 bills related to hemp or cannabis have been introduced.
Virginia
Virginia remains in legalization purgatory as adults 21 and older can grow, possess and consume cannabis but have no means to legally purchase it inside the state under Republican Glenn Youngkin’s governorship.
That’s because legislation signed by former Gov. Ralph Northam in 2021 included a reenactment clause, but Democrats lost their trifecta in 2022, and Youngkin has opposed cannabis reform since.
The commonwealth’s Democratic-controlled General Assembly sent Youngkin a bill to establish an adult-use commercial marketplace by legalizing licensed and regulated cultivation and dispensary sales, but the governor vetoed it, expressing his concerns over public health and safety.
Continuing their legalization pursuit this session, the Virginia Senate passed an adult-use sales bill entirely along party lines, 21-19, on Jan. 31, while the Virginia House passed companion legislation on a 53-46 vote on Feb. 4.
Del. Paul Krizek, D-Fairfax, who sponsored the legislation in the lower chamber, said earlier this year that while a repeat veto is almost certain, he doesn’t intend to give the governor a “free pass” on the “important” public policy issue.
Sen. Aaron Rouse, D-Virginia Beach, the bill’s sponsor in the upper chamber, said during floor debate in late January that “The safety and security of all Virginians is a top priority of this legislation. And in recent years, we’ve seen the unchecked proliferation of illegal and unregulated marijuana stores that have put Virginians at risk as unlicensed drug dealers sell billions of dollars of untested and untaxed products, and frequently to children.”
Last session, Democratic lawmakers reportedly attempted to negotiate a deal with Youngkin, where they’d support his funding proposal for a sports arena deal in exchange for him signing the adult-use bill. Although that deal did not materialize, the possibility of negotiations like this leaves Virginia in the “to watch” legalization category for 2025.
Wild Card
Indiana
That’s because the Republican-controlled General Assembly killed a host of bills in late February that aimed to decriminalize or legalize adult-use and medical cannabis, Fox 59 reported. Despite Indiana’s legislative session scheduled to go through April 29, the cannabis-related bills didn’t receive committee hearings.
“There’s always the next year,” Indiana House Speaker Todd Huston told the news outlet. “I don’t believe in doing … policy based upon revenue. I think you do good public policy, and you deal with the revenue, and that’s the way I feel about the marijuana issue.”
This blockade on reform came after Republican leaders indicated that cannabis legalization wasn’t among their 2025 legislative priorities heading into the session, but that didn’t stop bipartisan lawmakers from introducing a plethora of related bills.
Four bills aimed to legalize medical cannabis in the Hoosier State this legislative session:
- House Bill 1178, by Rep. Jim Lucas, R-Seymour
- House Bill 1635, by Rep. Jake Teshka, R-North Liberty
- Senate Bill 341, by Sen. Michael Young, R-Indianapolis
- Senate Bill 400, by Sen. Greg Taylor, D-Indianapolis
And four bills aimed to legalize adult-use cannabis:
- House Bill 1332, by Rep. Blake Johnson, D-Indianapolis
- House Bill 1630, by Rep. Heath VanNatter, R-Kokomo
- House Bill 1654, by Rep. Zach Payne, R-Charlestown
- Senate Bill 113, by Sens. Kyle Walker, R-Fishers, and Rodney Pol, D-Chesterton
These bills come as 87% of Indiana adults support legalizing medical cannabis, according to the 2024 Hoosier Survey conducted in November 2024 by the Bowen Center for Public Affairs.
Still, Republican leaders in Indiana’s General Assembly indicated in December that their opposition to legalization remains strong.
“It’s no secret that I am not for this,” Senate President Pro Tempore Rodric Bray said during a panel at the annual Dentons Legislative Conference in Indianapolis. “I don’t have people coming to me with really compelling medical cases as to why it’s so beneficial. And any state that I’ve seen pass medical marijuana is essentially passing recreational marijuana.”
The House speaker offered a similar take, suggesting that state legalization is more about aligning state coffers with tax revenue than it is about medical benefits. “I don’t believe public policy should ever be built based off revenue,” Huston said. “On any public policy, I don’t think you should chase revenue.”
This opposition from atop each chamber makes for a difficult path to cannabis reform, even if 87% of the state’s electorate supports the issue. However, with that much support paired with widespread legislative interest among other lawmakers, Indiana is a “wild card” for reform in 2025.
Indiana remains one of 24 states in the nation that do not provide for statewide citizen-initiated ballot measures.
Iowa
Iowa’s program prohibits cannabis flower, includes just two licensed manufacturers, bans home grows and limits patients to 4.5 grams of THC every 90 days unless they have a waiver from a certified provider, according to the state’s Department of Health and Human Services. The program includes just five authorized dispensaries.
While the Iowa House Democratic Caucus included adult-use cannabis legalization as one of its top four legislative priorities for this session, reforming the state’s cannabis laws to expand upon the medical program stands a much greater chance for success in the state’s Republican-controlled General Assembly, where the GOP holds 67% supermajorities in each chamber.
A few bills are in play this session, including House File 105, which would allow patients to access dried flower but only for vaporization (not combustible smoking), much like Ohio’s medical cannabis program before voters passed an adult-use legalization ballot measure in November 2023. That bill, sponsored by Rep. Hans Wilz, R-Ottumwa, advanced out of subcommittee on Jan. 27.
In addition, Senate File 46, sponsored by Sen. Scott Webster, R-Bettendorf, would double the number of dispensaries to 10. Lawmakers passed the legislation out of the Senate Commerce Committee on Feb. 20.
These incremental reforms would broaden patient access in a state where Republican Gov. Kim Reynolds opposes adult-use legalization. In 2022, she said, “I believe marijuana is a gateway drug that leads to other illegal drug use and has a negative effect on our society,” the Des Moines Register reported.
Iowa’s cannabis prohibition comes at a time when 71% of the state’s adults support legalizing medical cannabis and 52.5% support legalizing adult-use cannabis, according to a University of Iowa Hawkeye Poll conducted in 2022.
Iowa remains one of 24 states in the nation that do not provide for statewide citizen-initiated ballot measures.
Tennessee
Sen. Jeff Yarbro, D-Nashville, and Rep. Larry Miller, D-Memphis, introduced companion bills on Feb. 4 to allow adults 21 and older to purchase, consume and possess up to 60 grams of cannabis or 15 grams of concentrate and grow up to 12 plants in their homes. The legislation would also establish a licensed, taxed and regulated marketplace.
In addition, the legislation would authorize a parent or legal guardian to administer “non-smokable” forms of cannabis to minors with certain medical conditions.
Miller told The Center Square in early February that legalizing cannabis would provide Tennessee with $155 million in annual revenue.
“Our state has spent millions and millions of taxpayer dollars to enforce outdated cannabis laws,” he said.
Meanwhile, Sen. Janice Bowling, R-Tullahoma, and Rep. Iris Rudder, R-Winchester, are sponsoring companion legislation, the Tennessee Medical Cannabis Act, which would legalize medical cannabis, including a licensed marketplace for cultivation, manufacturing and sales. Bowling spoke in favor of the Senate version, Senate Bill 489, before the Judiciary Committee on Feb. 25.
“When you [track cannabis from seed to sale], then you have control over how it’s produced, the safety, all the different qualifications for a good medical cannabis program,” she said. “Whereas if now, we’re saying our citizens can go to another state and buy a product that we don’t know how it was tested. We don’t know if it contains other dangerous things as some of the products do that wouldn’t have the very concise testing that would take place in Tennessee.”
With no second on a motion to advance the bill, however, it was reassigned to the General Subcommittee of the Senate Judiciary Committee.
Given no state has legalized adult-use cannabis before medical cannabis and that Republicans control supermajorities in the Tennessee General Assembly, the medical cannabis legalization legislation offered by Bowling and Rudder has a much higher probability of passing this session, which is scheduled to go through April 25.
Tennessee is one of eight states absent of a medical cannabis program—even a highly restrictive program such as in Texas, where THC is capped at 1%. However, its residents in the western part of the state can cross the border and legally purchase adult-use cannabis in neighboring Missouri, while those in the eastern part of the state purchase it on Native American land in North Carolina.
Tennessee’s prohibition comes at a time when 63% of the state’s voters support legalizing adult-use cannabis, according to Vanderbilt University pollsters who surveyed 955 registered voters in December 2024.
