The Florida Senate
BILL ANALYSIS AND FISCAL IMPACT STATEMENT
(This document is based on the provisions contained in the legislation as of the latest date listed below.)
Prepared By: The Professional Staff of the Committee on Appropriations
BILL: SB 2512
INTRODUCER: Appropriations Committee
SUBJECT: Higher Education
DATE: April 3, 2025
ANALYST STAFF DIRECTOR REFERENCE ACTION
Gray Sadberry AP Submitted as Comm. Bill/FAV
I. Summary:
SB 2512 makes conforming changes related to the Senate’s Proposed General Appropriations
Act for the 2025-2026 fiscal year.
Specifically, the bill:
• Transfers the Linking Industry to Nursing Education (LINE) Fund program to the Center for
Nursing (Center) within the University of South Florida and:
o Expands the definition of a health care partner.
o Provides the definition of center to mean the Florida Center for Nursing within the
University of South Florida.
o Expands the allowed uses of the LINE Fund.
o Specifies the participating institution should submit the completed proposal to the center
rather than the Board of Governors (BOG) and the Department of Education (DOE).
o Allows health care partners to provide non-monetary contributions that directly support
the goals of the LINE Fund.
o Provides examples of allowable non-monetary LINE contributions.
• For the University of South Florida, Center for Nursing:
o Authorizes the center rather than the BOG and DOE to serve as the administrator of the
LINE Fund.
o Provides the requirements of the center such as providing technical assistance to eligible
institutions, to develop and publish on its website the guidelines for the LINE Fund
administration including application procedures and deadlines, criteria for program
eligibility, the application process, a process to ensure a fair evaluation of proposals and
determination of award recipients, and reporting and accountability standards of the
program.
o Allows the center to assign priority consideration for applicants that will improve
services in underserved geographic areas for programs and partnerships that address the
greatest workforce needs or gaps.
o Proposes that the center notify and provide a brief explanation to the applicant regarding
the determination of the institution’s proposal.
REVISED: BILL: SB 2512 Page 2
o Provides the allowed application determination statuses and definitions of such statuses.
o Allows but does not require the center to award funds to an approved proposal for up to
three academic years immediately following the academic year within which the initial
approval was granted.
• Removes the authority of the BOG to establish out-of-state fees for all programs and authorizes
each university board of trustees (BOT) to establish such fees. The bill also sets a system-wide
out-of-state enrollment cap for the state university system pursuant to BOG regulations.
The bill will have a cost to the state if additional funds are appropriated to the Florida Center for
Nursing for program administration. See Section V., Fiscal Impact Statement.
This bill takes effect July 1, 2025.
II. Present Situation:
Linking Industry to Nursing Education Fund
The Linking Industry to Nursing Education (LINE) Fund was established in 2022
1
as a
competitive grant opportunity and provides matching funds on a dollar-for-dollar basis to
participating institutions that partner with health care providers
2
incentivizing collaboration to
meet local, regional, and statewide demand for nurses.
3
The LINE Funds are available to:
• District career centers,
4
• Charter technical career centers,
5
• Florida College System (FCS) institutions,
• State Universities,
• Independent nonprofit colleges or universities located and chartered in the state accredited by
a United States Department of Education recognized accrediting agency or association to
grant baccalaureate degrees,
6
and
• Independent school, college, or university with an accredited program as defined in s.
464.003 which is located in this state and licensed by the Commission for Independent
Education pursuant to s. 1005.31, which has a nursing education program that meets or
exceeds the following:
o For a certified nursing assistant program, a completion rate of at least 70 percent for the
prior year.
o For a licensed practical nurse, associate of science in nursing, and bachelor of science in
nursing program, a first-time passage rate on the National Council of State Boards of
1
Chapter 2022-154, s. 50, L.O.F.
2
Sections 1009.8962, F.S. and 768.38, F.S.
3
Florida Board of Governors, All Universities with Nursing Programs Receive LINE Funding, available at
https://www.flbog.edu/2024/10/31/all-universities-with-nursing-programs-receive-line-funding/ (Last visited Feb. 24, 2025).
4
Section 1001.44, F.S.
5
Section 1002.34, F.S.
6
Section 1009.8962(3), F.S. BILL: SB 2512 Page 3
Nursing Licensing Examination of at least 75 percent for the prior year based on a
minimum of 10 testing participants.
7
The funds are to be administered by the Board of Governors (BOG) for state universities and by
the Department of Education (DOE) for all other institutions.
8
The funds may be used for student
scholarships, recruitment of additional faculty, equipment, and simulation centers to advance
high-quality nursing education programs throughout the state. Funds may not be used for the
construction of new buildings.
9
Each institution is required to submit a proposal to the BOG or DOE. The proposal must identify
the health care partner located and licensed in the state. The BOG or DOE must review and
evaluate each proposal according to the following minimum criteria:
• Whether funds committed by the health care partner will contribute to an eligible purpose.
• How the institution plans to use the funds, including how such funds will be utilized to
increase student enrollment and program completion.
• How the health care partner will onboard and retain graduates.
• How the funds will expand the institution’s nursing education programs to meet local,
regional, or state workforce demands. If applicable, it should include advanced education
nursing programs and how the funds will increase the number of faculty and clinical
preceptors and planned efforts to utilize the clinical placement process.
10
For the 2024-2025 fiscal year $24,000,000 was provided to school district postsecondary
technical career centers, charter technical career centers, Florida College System institutions,
independent non-profit colleges or universities, and independent schools, colleges, or universities
for participation in the LINE Fund program.
11
In the same year, $6,000,000 was provided to state
universities for participation in the LINE Fund program.
12
Florida Center for Nursing
The Florida Center for Nursing (center) was established in Florida to address the issues of supply
and demand for nursing.
13
The Legislature finds that the center will repay the state’s investment
by providing an ongoing strategy for the state’s resources directed to nursing. The center’s
primary goals are developing a strategic statewide plan for nursing manpower, enhancing and
promoting recognition, reward and renewal activities for nurses, and for convening various
groups representative nurses, other health care providers, business and industry, consumers,
lawmakers and educators.
14
To help accomplish these goals, the center must develop a statewide plan for nursing manpower
in the state by:
7
Id.
8
Section 1009.8962(4), F.S.
9
Section 1009.8962(6), F.S.
10
Section 1009.8962(7), F.S.
11
Specific Appropriation 129, Ch. 2024-231, L.O.F. and s. 79, Ch. 2024-15, L.O.F.
12
Specific Appropriation 146, Ch. 2024-231, L.O.F.
13
Section 464.0195(1), F.S.
14
Section 464.0195(2), F.S. BILL: SB 2512 Page 4
• Conducting statistically valid biennial data-driven gap analysis of the supply and demand of
the health care workforce.
• Developing recommendations to increase nurse faculty and clinical preceptors, support nurse
faculty development, and promote advanced nurse education.
• Developing best practices in academic preparation and continuing education needs of
qualified nurse educators, nurse faculty, and clinical preceptors.
• Piloting innovative projects to support the recruitment, development, and retention of
qualified nurse faculty and clinical preceptors.
• Encouraging and coordinating the development of academic-practice partnerships, including
partnerships with hospitals which provide opportunities for nursing students to obtain clinical
experience, to support nurse faculty employment and advancement.
• Developing distance learning infrastructure for nursing education and advancing faculty
competencies in the pedagogy of teaching and the evidence-based use of technology,
simulation, and distance learning techniques.
In addition, the center must enhance and promote recognition, reward, and renewal activities for
nurses in the state by:
• Promoting nursing excellence programs such as recognition by the American Nurses
Credentialing Center.
• Proposing and creating additional rewards, recognition, and renewal activities for nurses.
• Promoting media and positive image-building efforts for nursing.
Lastly, the center must convene various groups representative of nurses, or other health care
providers, business and industry, consumers, lawmakers and educators to:
• Review and comment on a data analysis prepared by the center.
• Recommend systemic changes, including strategies for implementation of recommended
changes.
• Evaluate and report the results of these efforts to the Legislature or other entities.
15
The center is required to annually submit details of its activities during the preceding calendar
year, including a nursing education program report.
16
In 2024, the center conducted a Community Engagement Tour in all regions of the state. A total
of 692 community members across the state participated in the Community Engagement Tour
where they were able to respond to the latest center research and offer feedback about unique
issues they face in their communities. Data collected during this tour will be used to build the
2026-2028 statewide strategic plan.
17
The center initiated the Shaping the Future: Becoming Nursing Faculty program. This program is
an online, 90-minute continuing education activity designed to provide an overview of the roles
and responsibilities of nursing faculty. In 2024, the program had 1,224 enrollments and 472
15
Id.
16
Section 494.0195(5), F.S.
17
Florida Center for Nursing, Florida Center for Nursing Impact Report 2024, page 14, available at
https://flcenterfornursing.org/about-us/annual-impact-reports/2024-impact-report/ (Last visited Feb. 24, 2025). BILL: SB 2512 Page 5
completions. After completion 85% of participants indicated they would consider a pathway to
becoming nursing faculty in Florida.
18
Postsecondary Tuition and Fees
Residency Status for Tuition Purposes
Students must be classified as residents or nonresidents for the purpose of assessing tuition in
postsecondary educational programs offered by public postsecondary institutions. Students pay
differing tuition rates and fees based on their status as a resident or nonresident of Florida.
19
To qualify as a resident for tuition purposes, a person, or if that person is a dependent child, his
or her parent or parents, must have established legal residence in Florida and must have
maintained legal residence for at least 12 consecutive months immediately prior to his or her
initial enrollment in the public postsecondary institution.
20
Each public postsecondary institution must make a residency determination based on the
submission of at least two forms of documentation specified in law. Documentation includes, but
is not limited to, a Florida voter registration card, Florida driver’s license, Florida vehicle
registration, homestead exemption (which is a single, conclusive proof of residency), proof of
full-time Florida employment, declaration of domicile, Florida incorporation, lease agreements,
or utility bills.
21
Tuition and Out-of-State Fees
Florida law defines “tuition” as the basic fee charged to a student for instruction provided by a
public postsecondary educational institution in the state. A student who is classified as a resident
for tuition purposes qualifies for the in-state tuition rate. An out-of-state fee is the additional fee
for instruction charged to a student who does not qualify for the in-state tuition rate,
22
unless
these costs are exempted or waived.
23
The resident undergraduate tuition rate for the State University System (SUS) is set at $105.07
per credit hour.
24
The SUS average tuition and out-of-state fee is $570.01 per credit hour.
25
The BOG may establish tuition for graduate and professional programs and out-of-state fees for
all programs for state universities. Except as otherwise provided, the sum of tuition and out-of-
state fees assessed to nonresident students must be sufficient to offset the full instructional cost
18
Florida Center for Nursing, Florida Center for Nursing Impact Report 2024, page 19-20, available at
https://flcenterfornursing.org/about-us/annual-impact-reports/2024-impact-report/ (Last visited Feb. 24, 2025).
19
Section 1009.21. F.S.
20
Section 1009.21(2), F.S. This section also specifies other circumstances that may classify a person as a resident for tuition
purposes.
21
Section 1009.21(3), F.S.
22
Section 1009.01, F.S.
23
Section 1009.24(2), F.S.
24
Section 1009.24(4), F.S.
25
Florida Board of Governors, State University System of Florida, Tuition and Required Fees, 2024-25 at 4,
https://www.flbog.edu/wp-content/uploads/2024/10/2024-2025-SUS-Tuition-and-Fees-Report-FINAL.pdf (last visited Mar.
14, 2025) BILL: SB 2512 Page 6
of serving such students. However, adjustments to out-of-state fees or tuition for graduate
programs and professional programs may not exceed 15 percent in any year.
A university may also implement a differential out-of-state fee as long as it is in accordance with
regulations developed by the board of governors.
26
Tuition Waivers
Florida law provides waivers from specified fees to certain students who meet identified criteria.
Some tuition and fee exemptions and waivers are established pursuant to Florida Statute and are
considered mandatory, while others are permissive. For example, a State University System
(SUS) or Florida College System (FCS) institution may waive tuition and fees for a classroom
teacher who is employed full-time by a school district and who meets the established academic
requirements, for up to six credit hours per term on a space-available basis in undergraduate
courses approved by the Florida Department of Education (FDOE). Such courses must be limited
to undergraduate courses related to special education, mathematics, or science.
27
Program of Strategic Emphasis or In-State Teacher Approved Preparation Program Waiver
Under current law, for every course in a Program of Strategic Emphasis (PSE), or in a state-
approved teacher preparation program identified by the Board of Governors, in which a student
is enrolled, a state university must waive 100 percent of the tuition and fees for an equivalent
course in such a program. To be eligible, a student must:
• Be a resident for tuition purposes;
28
• Earn at least 60 semester credit hours towards a baccalaureate degree within two academic
years after initial enrollment at a Florida public postsecondary institution; and
• Be enrolled in one of 10 STEM PSE.
29
The programs identified by the Board of Governors
must reflect the priorities of Florida and be offered at most state universities.
30
The PSE waiver is applicable only for upper-level courses and up to 110 percent of the number
of required credit hours of the baccalaureate degree program for which the student is enrolled.
31
Bright Futures Florida Academic Scholars or Florida Medallion Scholars participating in the
Program of Strategic Emphasis Waiver or a state-approved teacher preparation program must
receive a disbursement equal to the award amount received for the courses paid by the Bright
Futures Scholarship program.
32
A state university providing waivers to students enrolled in programs of strategic emphasis may
receive funding to offset the forgone tuition revenue if the Legislature appropriates funding in
26
Section 1009.24(4), F.S.
27
Section 1009.26, F.S.
28
A student who is classified as a “resident for tuition purposes” is a student who qualifies for the in-state tuition rate.
Section 1009.21(1)(g), F.S.
29
Section 1009.26, F.S., Rule 6A-14.0542, F.A.C.
30
Section 1009.26(18)(a), F.S.
31
Section 1009.26(18)(b), F.S.
32
Section 1009.26(18)(c), F.S. BILL: SB 2512 Page 7
the General Appropriations Act.
33
For 2024-2025 fiscal year, the Legislature appropriated
$38,485,299 for this purpose.
34
Out-of-State Enrollment
In a 2022 study, it was reported that in 47 states, public research universities increased the
proportion of out-of-state undergraduate students they admitted between 2002 and 2022. In those
two decades, the percentage of out-of-state undergraduate students at those universities rose
steadily from a nationwide average of 18 percent to 28 percent. The study assumes that this
increase occurred due to tightening of budgets and decreasing college enrollment, causing state
universities to admit more nonresident students to boost their revenues.
35
Public colleges and universities were designed to serve the educational needs of those who live
in the state. To uphold that mission, some schools and states set enrollment caps or limit the
number of out-of-state students that can be admitted each year.
36
Florida’s systemwide
enrollment cap on non-resident student enrollment is set by the BOG and is 10 percent of the
total systemwide enrollment.
37
Florida’s universities continue to be a destination for out-of-state students due their national
rankings and affordable tuition and fees. Since 2012, the number of undergraduate and graduate
out-of-state students enrolled in the state university system has increased significantly.
Specifically, as shown in the table below, the number of undergraduate out-of-state students has
increased 148 percent (18,525 students) while the number of graduate out-of-state students have
increased by 55 percent (8,995 students).
38
33
Section 1009.26(18)(d), F.S.
34
Specific Appropriation 147, Ch. 2024-231, L.O.F.
35
Stateline, State universities admit more out-of-state students for the tuition bump (2024) available at
https://stateline.org/2024/02/15/state-universities-admit-more-out-of-state-students-for-the-tuition-bump/ (last visited Mar.
27, 2025).
36
US News, College Enrollment Caps (2022), available at https://www.usnews.com/education/articles/college-enrollment-
caps-what-to-know (last visited Mar. 27, 2025).
37
Florida Board of Governors, R. 7.006 Limitation on Non-resident Student Enrollment, available at
https://www.flbog.edu/wp-content/uploads/7.006_technical_change_2010_01_12.pdf (last visited Mar. 31, 2025).
38
Florida Board of Governors, Tuition and Out-Of-State Fee Overview (2023), available at https://www.flbog.edu/wp-
content/uploads/2023/06/Tuition-and-Out-of-State-Fee-Overview.pdf at 6 (last visited Mar. 27, 2025) BILL: SB 2512 Page 8
III. Effect of Proposed Changes:
Section 1 amends s. 464.0195, F.S., to clarify that the Florida Center of Nursing (Center) is
located within the University of South Florida. The bill provides that the Center must administer
the Linking Industry to Nursing Education (LINE) Fund and must proactively promote to
eligible institutions the availability of matching funds through the LINE Fund prior to the
opening of the annual application period.
The center is also responsible for administering the application, evaluating, and distributing the
LINE Fund and for providing technical assistance to eligible institutions prior to, during, and
after the award process to maximize the success of the program statewide. The center must also
develop and publish on its website guidelines for the LINE Fund that include: application periods
and deadlines, criteria for program eligibility and funding priorities, a preapproval process, a
process to ensure a fair evaluation of all submitted proposals and determination of award
recipients, the process that each type of eligible institution must follow to certify the receipt of
and pledged contributions from any other partner organizations, and reporting and accountability
standards for recipients.
Section 2 amends s. 1009.24, F.S., to remove the authority of the Board of Governors (BOG) to
establish out-of-state fees for all programs. The bill authorizes each university board of trustees
(BOT) to establish such fees, provided the sum of tuition and out-of-state fees assessed to non-
resident students is sufficient to offset the full instructional cost of serving such students.
Additionally, beginning with the 2026-2027 academic year, the BOG is required to ensure that
the systemwide threshold for non-resident student enrollment, excluding the non-resident student
enrollment at Florida Agriculture and Mechanical University, does not exceed the threshold
established pursuant to BOG regulations, which sets the threshold at 10 percent.
The bill removes the requirement specifying that the block tuition policy for non-resident
undergraduate students shall be based on the per-credit-hour undergraduate tuition and out-of-
state fee to conform to the removal of the authority for the BOG to establish the out-of-state fees
for all programs.
Section 3 amends s. 1009.26, F.S., to specify that for students enrolled in a Program of Strategic
Emphasis or in a state-approved teacher preparation program, and who have out-of-pocket
expenses for tuition and fees after all federal, state, and institutional gift aids are applied, then a
state university shall waive 100 percent of the student’s out-of-pocket expenses for tuition and
fees for an equivalent course in such program.
Section 4 amends s. 1009.862, F.S., to expand the definition of the term “health care partner”
and allow the center to consider organizations that are connected to nursing education or the
nursing workforce. The following organizations will now be eligible for consideration under the
health care partner provision: an organization that manufactures or sells durable medical
equipment or simulation equipment that demonstrably enhances or supplements a nursing
student's education; an organization that provides educational materials or instruction related to
preparation to pass a nationally recognized nursing licensure examination; a health care
organization active in the state that employs or utilizes licensed nurses to deliver direct patient BILL: SB 2512 Page 9
care; and a nonprofit organization or fund with a 501(c)(3) designation registered in the state for
at least two years prior to the date of the initial LINE Fund application that is organized
primarily, or that makes other reportable charitable contributions, to support the health care
workforce of this state through training or the continuing education of health care professionals.
This section of the bill also provides the definition of center to be the Florida Center for Nursing
within the University of South Florida.
In addition, the bill expands the allowed uses of the LINE Fund to include preceptors, increasing
enrollment, completions, and licensure exam passage rates, internships, and other related
activities determined by the center to advance high quality nursing education programs and to
expand the qualified nursing workforce throughout the state.
The bill retains that funds may not be used for construction of new buildings but does allow for
funds to be used to expand, retrofit, or upgrade existing facilities if the proposal will result in
increased program enrollment or improved or modernized educational or simulation space for
nursing education students.
The bill streamlines and simplifies the proposal process by requiring institutions to submit timely
and completed proposals to the center, rather than the Board of Governors (BOG) or the
Department of Education (DOE). The proposal must identify the specific health care partner
whose monetary or non-monetary contributions will be matched. The bill further specifies the
examples of non-monetary donations and the requirements to accept non-monetary contributions
as health care partner matching funds.
The bill provides that the center must timely review and evaluate each submitted and completed
proposal according to the minimum criteria requirements including but not limited to the
institution’s plan to utilize funds, and how the health care partner will onboard and retain
graduates or otherwise improve the likelihood that graduates will successfully join the state or
local workforce.
Additionally, the bill allows the center to assign priority consideration for applications that will
improve services in underserved geographic areas or for programs and partnerships that address
the greatest workforce needs or gaps.
The bill requires that after reviewing and evaluating each timely submitted proposal, the center
must notify the applicant of its determination and provide a brief explanation for the reasons for
reaching such determination.
The bill clarifies that the center may, but is not required to, award funds to an approved proposal
for up to three academic years immediately following the academic year within which the initial
approval is granted and provides the notification requirements to the institution.
Lastly, the bill removes the requirement for the BOG and State Board of Education (SBE) to
adopt regulations and rules to administer the funds, establish dates for submission and review of
proposals, award funds, and other regulations and rules necessary to implement the LINE Fund BILL: SB 2512 Page 10
IV. Constitutional Issues:
A. Municipality/County Mandates Restrictions:
None.
B. Public Records/Open Meetings Issues:
None.
C. Trust Funds Restrictions:
None.
D. State Tax or Fee Increases:
None.
E. Other Constitutional Issues:
The Florida Constitution provides:
Any proposal or action of a constituent university to raise, impose,
or authorize any fee, as authorized by law, must be approved by at
least nine affirmative votes of the members of the board of trustees
of the constituent university, if approval by the board of trustees is
required by general law, and at least twelve affirmative votes of the
members of the board of governors, if approval by the board of
governors is required by general law, in order to take effect. A fee
under this subsection shall not include tuition.
39
V. Fiscal Impact Statement:
A. Tax/Fee Issues:
None.
B. Private Sector Impact:
None.
C. Government Sector Impact:
SB 2500 reduces the funding appropriated to universities by $38,485,299 for tuition
waivers for students enrolled in upper division courses for Programs of Strategic
Emphasis and approved teacher education programs.
39
Fla. Const. Art. IX, s. 7. BILL: SB 2512 Page 11
SB 2500 transfers $30 million for the LINE Fund from the Florida College System and
State University System - Education and General Activities budgets to the Florida Center
for Nursing within the University of South Florida to reflect the center’s role as the
administrator for the program. In addition, SB 2500 provides an additional $3 million for
program administration.
VI. Technical Deficiencies:
None.
VII. Related Issues:
None.
VIII. Statutes Affected:
This bill substantially amends the following sections of the Florida Statutes: 464.0195, 1009.24,
1009.26, and 1009.8962.
IX. Additional Information:
A. Committee Substitute – Statement of Changes:
(Summarizing differences between the Committee Substitute and the prior version of the bill.)
None.
B. Amendments:
None.
This Senate Bill Analysis does not reflect the intent or official position of the bill’s introducer or the Florida Senate.