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Interstate Cannabis Commerce on the Horizon Thanks to California

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Despite the proliferation of in-state cannabis businesses and commerce, the sale and transportation of marijuana between and among states, even states with legal cannabis frameworks, remains federally prohibited due to the classification of marijuana as a Schedule 1 drug under the Controlled Substances Act. This has led to some of the oversupply and price decrease challenges businesses have been grappling with in Oregon, California, and Colorado as well as has, in some ways, supported the illicit market as over-taxed and over-regulated licensed businesses struggle to turn a profit.

Recognizing the regulatory barriers and financial constraints afflicting legitimate cannabis businesses, California’s Governor Gavin Newsom signed Senate Bill 1326 into law in late 2022, which introduced a process for California to enter into agreements with other states to allow for interstate cannabis transactions. Pursuant to the new law, California may enter into an agreement with another state that allows for medicinal or adult-use cannabis, which would then allow licensed entities in both contracting states to enter into contracts for the import, export, distribution, and transportation of cannabis products (flower, bulk oil, finished products, etc.) from one state to the other, and vice-versa. With respect to the interstate transportation of cannabis or cannabis products, however, contracting parties would be prohibited from

(1) transporting cannabis by any means other than those authorized under both the laws of the foreign state and the regulations of the California Department of Cannabis Control; and

(2) transporting cannabis products through the jurisdiction of a state, district, commonwealth, territory, or possession of the United States that does not authorize that transportation.

Therefore, logistics and identification of “green” routes in between distant states will be paramount.

Moreover, any such interstate agreements with California will require the contracting state participants to be bound by California requirements pertaining to public health and safety, tracking, testing, labeling, etc. This means out of state producers will need to comply with California law, including tax laws, when selling products to California operators as if they were licensed and operating in California. Looking to control how its products are sold or marketed in other states, California will require any receiving state to have cannabis advertising, marketing, and labeling restrictions that meet or exceed those in California.

But before any lawyers can get to work trying to paper any such import/export agreements (which can only happen after the governors of the participating states enter into a cannabis commerce agreement), one of four things needs to happen:

(1) the federal law is amended to allow for interstate cannabis commerce;

(2) a federal law is enacted proscribing the use of federal funds to prosecute or prevent the interstate transfer of cannabis;

(3) the Department of Justice issues an opinion tolerating the interstate transfer of cannabis; or

(4) the California Attorney General issues a written opinion that implementation of interstate cannabis agreements will not result in “significant legal risk” to the State of California.

The California Department of Cannabis Control (“CDCC”) has opted for option 4 and earlier this year submitted a request for a written opinion from the Attorney General on the matter. In requesting an opinion on whether “state-law authorization for medicinal or adult-use commercial cannabis activity, or both, between out-of-state licensees and California licensees, under an agreement pursuant to SB 1326, will result in significant legal risk to the State of California under the federal Controlled Substances Act,” the CDCC provided several reasons why it believed it would not.

The CDCC posited that the anti-commandeering rule in the U.S. Constitution “protects California from liability, under federal law, for choosing to legalize and regulate commercial cannabis activity as a matter of its own state laws” and the “Controlled Substances Act could not constitutionally prohibit California from legalizing and regulating commercial cannabis activity as a matter of state law, including commercial cannabis activity involving out-of-state licensees.” The CDCC further argued because the Controlled Substances Act indiscriminately “shields state officials from liability in connection with their enforcement of state law,” California and its officials would be immune from prosecution for enforcing state laws pertaining to controlled substances such as marijuana. Finally, the CDCC pointed out that the appropriations rider attached to federal spending bills “expressly forbids the U.S. Department of Justice from expending funds to interfere with states’ implementation of their medicinal-cannabis laws.”

Therefore, the CDCC asked the Attorney General to confirm its conclusion that by entering into and implementing interstate cannabis import/export agreements, California would not be at a significant legal risk with respect to the Controlled Substances Act. Whether the Attorney General shares that conclusion and is willing to memorialize it in a formal opinion remains to be seen. In any case, California has made commendable strides toward a commercially viable interstate cannabis market, an effort shared by other states such as Oregon, Washington, and New Jersey which are all in different stages of enacting similar laws.



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Driving Under the Influence of Marijuana

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No national standard exists to determine how long someone should wait to drive after consuming marijuana. However, experts at the Colorado Department of Public Health and Environment recommend waiting at least six hours after smoking less than 35 milligrams of THC and eight hours after eating or drinking something containing less than 18 milligrams.

For reference, a “typical” marijuana cigarette contains at least 60 milligrams of THC, and most edibles contain around 10 milligrams per serving size. A 12-hour wait is safer, as the high (and subsequent drowsiness) from smoking a typical amount lasts far longer.



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How can it help distressed cannabis companies today?

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Without the option to declare bankruptcy—due to federal illegality—the only recourse for cannabis businesses in distress to become solvent and / or distribute assets to creditors is to enter into an expensive and difficult judicial cannabis receivership. Receiverships are inherently adversarial, and the required input from third-party experts, lawyers and regular engagement with the courts can be incredibly costly.

Meanwhile, businesses operating in mainstream sectors have the ability to declare bankruptcy. This is also a court-ordered procedure that allows companies to satisfy lenders by liquidating assets, restructuring operations and finances, and to enjoy a break of sorts to make deals with creditors and renegotiate contracts and leases. Without a change to federal banking laws, cannabis companies are blocked from the benefits of bankruptcy, and the situation is only getting worse.

Given the current tight capital market environment, the increase in cannabis distressed assets, and the shortage of options to cannabis operators to address said challenges, is there a possible alternative option to alleviate the rather dire situation?

 

Genesis—Transition from Equity Financing to Debt Financing

Equity financing has been the most prominent way to raise capital in cannabis for the last several years. However,recent data collected by Viridian Capital Advisorsreveals that debt currently makes up 93% of capital raised by U.S. cannabis cultivation and retail companies, compared to 55.7% in U.S. industries overall.

This change in the capital-raising environment, which has led to an increased number of creditors in the sector, combined with continued market pressures on cannabis businesses to remain competitive, make it highly likely that the industry will inevitably see more receiverships.

Ultimately, while debt financiers are willing to lend cannabis businesses money, they expect to be paid back on time and often with high interest. If the business begins to struggle and enters a distressed phase that leads to receivership, the business assets will be sold off and the secured lenders will be the first to get paid, while the business itself is likely not to recover much.

Consider an Administrative and Collateral Agent

With receiverships punishingly expensive and the debt financing landscapebordering on predatorial, distressed cannabis businesses are desperate for any assistance or support available.  An Administrative and Collateral Agent (ACA) could be the alternative support required, benefitting borrowers, lenders and regulators alike, and offering a more cost-effective and less punitive option to courts, receivers and lawyers.

Instead of dealing with the courts and an expensive court-appointed receiver, cannabis companies seeking relief could turn to an ACA to facilitate mediation between parties and create alignment within the industry, which does not exist today.

An ACA could create a level of trust, transparency and complementary positioning with industry participants that simply has not yet existed in cannabis. The use of an ACA could challenge the competing perceptions that there is already alignment between regulators, operators and lenders, or that a useful alignment between these parties could ever exist.

An ACA could be a real and valuable tool for state governments and regulators as they begin to understand that it is in their best interests to assist cannabis businesses in their states in the face of continued federal illegality and restrictions. Under a private agreement between parties, the ACA would conduct something more akin to an administrative receivership as opposed to the traditional judicial receivership that is the only current option for insolvent cannabis businesses to seek relief.

Building upon a Cannabis Credit Rating Framework

Ideally, an ACA would work within an industry-specific credit rating system for cannabis businesses in distress in order to work within an established framework for potential investors. If cannabis companies are ranked across an equitable, systematic and formulaiccredit rating system, borrowers, lenders and regulators would benefit from the quantifiable transparency afforded by said rating, and debt financing would have an inherent regulatory-like structure to prevent predatory lending. By avoiding the courts, the distressed cannabis company would save time, money and create a more attractive scenario for potential lenders.

Initial Path to Mitigating Solutions

While the current challenges facing cannabis businesses today are well documented and have risen to both creditors and regulators attention, a viable solution has yet to be identified. Most likely no one solution exists beyond waiting for the economic and capital environments to evolve. Yet, mitigating options do exist.

The introduction of an ACA is one such option. Questions remain as to the mechanics, regulatory, operative and fiscal alike, as well as who to trust to take it on. The introduction of a credit rating framework is the first step to creating a solid foundation from within which an ACA can operate transparently and equitably. Any potential buy-in from regulators, creditors and operators remains an open question.

All of that said, there is today an unprecedented set of market forces that is pushing all cannabis stakeholders to think outside of the box. The still growing opportunities in the cannabis industry, the will of operators to survive and succeed, as well as the increasing exposure from creditors, all point to not only an acceptance for the need of an alternative, but to the drive to do things differently.

Is your cannabis business in distress? Would you benefit from expert guidance and support in deciding on whether to enter into a receivership?Reach out to United CMC today.



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United States: Alex Malyshev And Melinda Fellner Discuss The Intersection Of Tax And Cannabis In New Video Series – Part VI: Licensing (Video)

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Carter Ledyard is pleased to announce the launch of our short-video series on the cannabis industry focusing on business and legal issues for those companies and entities interested in doing business in New York.

This series offers a perspective on tax policy and specific statutes affecting cannabis businesses today. Our cannabis shorts are a great way to get to know our professionals, Alex Malyshev and Melinda Fellner, in quick and easy to watch clips, packed with the salient information you need.

In Part VI of our series, Alex and Melinda discuss licensing for cannabis businesses in New York. Watch below!

 



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