PROBLEM STATEMENTS:

As the next Governor of the State of Tennessee with an extensive background in Public Health Administration, my sole responsibility as it relates to the legalization of cannabis is to do what is in the best interest of all Tennesseans as it relates to safety, health, welfare, and economic empowerment, thus addressing the pros and cons of cannabis. This matter is not about a popularity issue but a well-thought-out accountability from a person in a political office, not motivated by dark money, voters' pressure, or lobbyist influence.

Many factors must be taken into consideration, such as cannabis use coupled with mental illness, poverty, racial disparities, gun control, crime, domestic violence, drug disparities, and decriminalization.

(a) The U.S. Food and Drug Administration (FDA) has not approved the cannabis plant as a safe and effective treatment for any medical condition. However, it has approved certain cannabis-derived and synthetic cannabinoid medications for specific conditions (like severe epilepsy or chemotherapy-induced nausea).

(b) Black people in Tennessee are arrested for marijuana possession at a significantly higher rate than white people, despite studies showing similar usage rates. A 2024 Department of Justice report found that the Memphis Police Department (MPD) arrested Black adults for marijuana possession at 5.2 times the rate of white adults between 2018 and 2023.

(c) Memphis Disparities: The DOJ report highlighted that MPD's "aggressive street enforcement" often targets predominantly Black neighborhoods.

• Statewide Trends: According to an ACLU analysis, Black people in Tennessee are over three times more likely to be arrested for marijuana possession than white people, with enforcement rates rising even as national arrests have sometimes declined.

• Nashville Data: Data from 2014 to 2019 showed that over 50% of people arrested for simple marijuana possession in Nashville were Black, despite Nashville having a much higher white population percentage.

• Targeted Policing: Reports indicate that police in some Tennessee areas use the reported "odor of marijuana" as a pretext to stop and arrest residents in Black neighborhoods far more often than in white areas.

(d) Tennessee continues to have one of the highest marijuana arrest rates in the country, with marijuana possession often serving as a primary entry point into the criminal legal system for Black and brown communities.

(e) HB 2525 would allow adults age 21 and older to possess up to 60 grams of marijuana, share limited amounts with other adults without payment, and cultivate up to 12 plants at home in a secured, private area that is not visible from public view.

(f) While marijuana usage rates are similar across racial lines, the enforcement of laws against it heavily targets Black communities, resulting in higher rates of arrest, conviction, and resulting criminal records.

(g) Impact of Legalization: Even in states that have legalized or decriminalized marijuana, racial disparities in arrests often remain, with Black people still being disproportionately targeted.

(h) Persistent Disparity: The ACLU reports that this racial disparity has persisted for decades and has worsened in most states, even as overall arrests have decreased in some areas.

(i) The term 'marijuana' has a racist history in the United States that targeted communities of color. In 1937, the Marihuana Tax Act was passed. During this time, some media outlets created false connections between marijuana and negative stereotypes of people within the Mexican immigrant and African American communities.

(j) Cannabis remains criminalized at the federal level in the U.S. under the Controlled Substances Act, despite widespread state-level legalization. Historically, this criminalization was driven by racist narratives, anti-Mexican sentiment in the early 20th century, and efforts to promote specific government departments.

(k) Federal Status: Marijuana is still classified as a controlled substance, though the federal government has considered rescheduling it to a less severe category.

State Variations: While many states have legalized it, others, such as Tennessee, maintain strict bans, with law enforcement using testing protocols to distinguish hemp from illegal marijuana.

(l) The increased risk of problematic cannabis use highlights the need for more research on prevention, treatment, and policy interventions that target cannabis use, especially among understudied and underserved populations who often experience the most detrimental health, social, and legal consequences of cannabis use, such as racial/ethnic minorities.

In the United States, cannabis is legal in 40 of 50 states for medical use and 24 states for recreational use. At the federal level, cannabis is classified as a Schedule I drug under the Controlled Substances Act, determined to have a high potential for abuse and no accepted medical use, prohibiting its use for any purpose. Despite this prohibition, federal law is generally not enforced against the possession, cultivation, or intrastate distribution of cannabis in states where such activity has been legalized. In April 2024, during the Biden administration, the Department of Justice initiated a process to reschedule cannabis to the less-restrictive Schedule III. Executive Order 14370, issued December 18, 2025, during the second Trump administration, expedited the process of rescheduling.

The medical use of cannabis is legal with a medical recommendation in 40 states, four out of five permanently inhabited U.S. territories, and the federal District of Columbia (D.C.). Ten other states have laws that limit the psychoactive compound tetrahydrocannabinol (THC), for the purpose of allowing access to products rich in cannabidiol (CBD), a non-intoxicating component of cannabis. The Rohrabacher-Farr amendment, first passed in 2014, prohibits federal prosecution of individuals complying with state medical cannabis laws.

The recreational use of cannabis has been legalized in 24 states, three U.S. territories, and D.C. Another seven states have decriminalized its use. Commercial distribution has been legalized in all jurisdictions where possession has been legalized, except for Virginia and D.C. Personal cultivation for recreational use is allowed in all of these jurisdictions except for Delaware, Illinois, New Jersey, and Washington State.

(d) In Tennessee, Recreational: Illegal; Misdemeanor (less than .5 oz (14 g); first or second offense only). Medical: Cannabis oil (less than 0.9% THC). Cultivation: Illegal; Misdemeanor (nine plants or less).
Felony (ten or more plants). First-time possession: one year supervised probation instead of one year in prison; possession of .5 oz (14 g) or more for resale is a felony. CBD oil possession was allowed as of May 4, 2015, if suffering from seizures or epilepsy with the recommendation of a doctor.

Pros of Cannabis (Potential Benefits)

Atwater would push to legalize cannabis for medicinal and recreational use to address disparities and the economic trajectory for better roads and revenue, thus monitoring the pros and cons of cannabis.

(a) Tennessee lawmakers have advanced a sweeping marijuana legalization bill that could reshape employment, drug testing, and background screening across the state. House Bill 2525, known as the “ Pot for Potholes," would legalize adult cannabis use while creating a regulated commercial market, revising portions of criminal law, directing new tax revenue to roads and community investment, and signaling a meaningful shift in how marijuana intersects with work.

(b) Pain Management

Cannabis is widely recognized for its ability to alleviate chronic pain, including neuropathic pain, and is often considered a safer alternative to opioids due to a lower risk of addiction and fewer treatment discontinuations. Both THC and CBD contribute to pain relief by interacting with the body’s endocannabinoid system, particularly CB1 receptors in the brain and CB2 receptors in immune cells. Patients with conditions like multiple sclerosis, arthritis, and fibromyalgia have reported significant improvements in pain symptoms.

(c) Sleep and Insomnia

Cannabis, particularly formulations combining THC and CBD, has been studied as a sleep aid. Clinical trials indicate that it can help individuals with insomnia, restless leg syndrome, or PTSD-related sleep disturbances fall asleep faster and improve sleep quality. Its effects are most pronounced in people whose sleep issues are linked to pain or other medical conditions.

(d) Neurological Protection

Cannabis shows potential in protecting brain health and supporting cognitive function. Research suggests benefits for neurodegenerative diseases such as Alzheimer’s and Parkinson’s, with CB2 receptors in diseased brain tissue playing a role in reducing inflammation and promoting neuroprotection. Ongoing clinical trials are investigating cannabis-based therapies for cognitive decline.

(e) Anti-Inflammatory Effects

Cannabis compounds interact with CB2 receptors in immune cells, helping reduce inflammation and modulate immune responses. This makes it potentially useful for autoimmune conditions and inflammatory disorders.

Additional Benefits

Cannabis may also assist in reducing opioid and alcohol use, serving as a harm-reduction tool for individuals managing dependencies. It is increasingly used for relaxation, stress relief, and overall wellness, with many users reporting improved quality of life and coping mechanisms.

Cannabis offers scientifically supported benefits for pain relief, mental health, sleep improvement, inflammation control, and neurological protection.

• Pain Management: Effective for chronic, neuropathic, and muscle spasm pain.

• Medical Treatment: Used for nausea from chemotherapy, appetite loss (AIDS), epilepsy, and MS symptoms.

• Mental Health:

  Short-term relief for anxiety, stress, or panic in some users.

• Relaxation: Produces feelings of joy and relaxation.

• Sleep Aid: May help with sleep problems related to conditions like fibromyalgia.

Cons of Weed (Potential Risks & Side Effects)

• Cognitive & Physical Impairment: Causes memory loss, difficulty thinking, slower reactions, and decreased coordination.

• Mental Health Risks: Associated with anxiety, depression, psychosis, and schizophrenia, particularly with high-THC use.

• Addiction and Dependence: Long-term use can lead to dependency and withdrawal symptoms (irritability, sleeplessness).

• Respiratory Issues: Smoking causes lung damage, bronchitis, and airway irritation.

• Brain Development Issues: Can cause permanent IQ loss, especially if used during adolescence.

• Safety Hazards: Impairs driving and increases accident risks.

• Legal/Employment Issues: Remains federally illegal in the U.S. and some other countries, affecting employment.

Scromiting is a combination of screaming and vomiting. This nickname refers to extreme episodes linked to cannabinoid hyperemesis syndrome (CHS), a condition seen in people who use cannabis, commonly known as marijuana, heavily over time.

The study found that the relative risk of young people aged 17 and under with cannabis use disorder was 52% higher for schizophrenia. 30% higher for recurrent major depression, and 21% higher for anxiety disorders, compared to young people with other substance use disorders.

Cannabis use can increase the risk of things like depression and suicidal feelings.

Atwater's Goal and Strategies:

Upon legalizing cannabis in the State of Tennessee with provisions, there would be an aggressive plan of action to use these funds as revenue to benefit Tennesseans.

Cannabis tax revenue is primarily used to fund public education, community reinvestment in areas impacted by drug laws, substance misuse treatment, and law enforcement. States also allocate funds to public health programs, infrastructure, and administrative costs for regulating the legal market.

Medical cannabis is often taxed at a much lower rate than recreational cannabis. In some states, recreational users may pay up to 35% in combined local and state taxes, while medical cardholders are exempt from certain excise and sales taxes.

(a) Make it a high priority to legalize medicinal marijuana for veterans and other medical disability groups.

(b) Community Reinvestment & Social Equity: Use revenue for programs tackling issues in communities disproportionately affected by the war on drugs. For instance, Atwater would direct 40% of tax revenue to a Community Grants Reinvestment Fund for education and economic development. Use 25% of cannabis revenue for the TENN-R3 (Restore, Reinvest, and Renew) program to support areas with high gun violence and unemployment.

• Education Funding: A popular use of tax revenue is supporting K-12 education, including school construction and school lunch programs. Tennessee's Building Outstanding Schools Securely (BOSS) fund will receive a portion of cannabis excise taxes to build and repair schools, especially in rural and urban areas that have been neglected for decades.

• Public Health and Addiction Treatment: Atwater will invest in mental health services, substance abuse prevention, and drug addiction treatment programs.

• Law Enforcement & Public Safety: Atwater will allocate funds to be directed toward police training and mental health crisis intervention, training for drug recognition experts, and addressing driving under the influence of cannabis.

• Infrastructure & State General Funds: In addition to specific programs, a portion of cannabis tax revenue will go into general funds to support public services. For example, allocating over $100 million in cannabis revenue to the state transportation fund for road repair.

• Local Government Costs: Local governments will receive a share of tax revenue to manage the costs of having cannabis dispensaries, such as increased regulation and public service requirements.