Title: The Florida Bar Re: Advisory Opinion – Medicaid Planning Activities by Nonlawyers
Citation: N/A
Docket Number: SC14-211
State: Florida
Issuer: Florida Supreme Court
Date: January 15, 2015

Supreme Court of Florida 
 
 
____________ 
 
No. SC14-211 
____________ 
 
 
 
THE FLORIDA BAR RE: ADVISORY OPINION— 
MEDICAID PLANNING ACTIVITIES BY NONLAWYERS. 
 
[January 15, 2015] 
 
PER CURIAM. 
 
Pursuant to Rule Regulating the Florida Bar 10-9.1, the Florida Bar Elder 
Law Section’s Unlicensed Practice of Law Subcommittee petitioned the Florida 
Bar’s Standing Committee on the Unlicensed Practice of Law (Standing 
Committee) for an advisory opinion on whether it constitutes the unlicensed 
practice of law for a nonlawyer to engage in the following Medicaid planning 
activities leading up to the Medicaid application: (1) drafting of personal service 
contracts; (2) preparation and execution of qualified income trusts; or (3) rendering 
legal advice regarding the implementation of Florida law to obtain Medicaid 
benefits.  As required under rule 10-9.1(f), the Standing Committee provided 
notice of and held a public hearing to address these issues where it considered 
written and live testimony.  The Standing Committee subsequently filed a 
 
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proposed advisory opinion in this Court.  We have jurisdiction to review the 
proposed advisory opinion pursuant to rule 10-9.1(g) of the Rules Regulating the 
Florida Bar and article V, section 15 of the Florida Constitution. 
After the proposed advisory opinion was filed, interested parties were 
permitted to file briefs in support of or in opposition to the proposed advisory 
opinion.  After considering the proposed opinion and the briefs of the interested 
parties, the Court directed the Standing Committee to file a revised proposed 
advisory opinion with certain clarifications regarding the activities of nonlawyer 
staff of the Florida Department of Children and Families in relation to their duty to 
assist the public in the Medicaid application process.  The revised proposed 
advisory opinion is hereby approved and is set forth in the appendix to this 
opinion.1  As provided in Rule Regulating the Florida Bar 10-9.1(g)(4), the 
advisory opinion shall have the force and effect of an order of this Court and shall 
be published accordingly.   
It is so ordered.   
LABARGA, C.J., and PARIENTE, LEWIS, QUINCE, CANADY, POLSTON, 
and PERRY, JJ., concur. 
 
NOT FINAL UNTIL TIME EXPIRES TO FILE REHEARING MOTION, AND 
IF FILED, DETERMINED.   
                                          
 
 
1.  References to the transcript of the live testimony heard by the Standing 
Committee at the public hearing and to written testimony and other materials 
considered by the Standing Committee have been deleted.  Other minor editorial 
changes have also been made.  
 
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Original Proceeding – The Florida Bar Re: Advisory Opinion – Medicaid Planning 
Activities by Nonlawyers 
 
C.C. Abbott, Chair, Standing Committee on the Unlicensed Practice of Law, 
Tallahassee, Florida; Carsandra Denyce Buie, Past Chair, Standing Committee on 
the Unlicensed Practice of Law, Tallahassee, Florida; Lori S. Holcomb, and Jeffrey 
Todd Picker, The Florida Bar, Tallahassee, Florida, on behalf of the Standing 
Committee on the Unlicensed Practice of Law; Jana McConnaughhay, Chair, Elder 
Law Section of The Florida Bar, Tallahassee, Florida; John Sanders Clardy, III, 
Past Chair, Elder Law Section of the Florida Bar, Clardy Law Firm, P.A., Crystal 
River, Florida; and Robert M. Sondak of Cohen, Chase, Hoffman & Schimmel, 
P.A., Miami, Florida, on behalf of the Elder Law Section of The Florida Bar;   
 
 
for Petitioner 
 
Cindy Leann Huddleston and Anne Lisa Swerlick, Tallahassee, Florida, on behalf 
of Florida Legal Services, Inc., and Valory Toni Greenfield, Miami, Florida, on 
behalf of Florida Legal Services, Inc.; Anthony L. Turbeville, Lakeland, Florida, 
pro se; and Stephen Michael Masterson, Tallahassee, Florida, on behalf of William 
D. Burns, 
 
 
Responding with comments 
 
 
 
 
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APPENDIX 
 
 
THE FLORIDA BAR 
STANDING COMMITTEE ON THE  
UNLICENSED PRACTICE OF LAW 
FAO #2011-4, MEDICAID PLANNING ACTIVITIES BY NONLAWYERS 
_______________________________________________________________/ 
REVISED PROPOSED ADVISORY OPINION 
October 14, 2014 
 
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INTRODUCTION 
Pursuant to rule 10-9 of the Rules Regulating The Florida Bar, The Florida 
Bar’s Elder Law Section UPL Subcommittee petitioned the Standing Committee 
on Unlicensed Practice of Law (Standing Committee) for an advisory opinion on 
certain activities of nonlawyer Medicaid planners. 
The petitioner requested an advisory opinion on whether it constitutes the 
unlicensed practice of law for a nonlawyer to engage in the following Medicaid 
planning activities leading up to the Medicaid application: (1) drafting of personal 
service contracts; (2) preparation and execution of qualified income trusts; or (3) 
rendering legal advice regarding the implementation of Florida law to obtain 
Medicaid benefits.  The preparation of the application for Medicaid benefits was 
not considered as federal law authorizes nonlawyer assistance in the application 
process.1 
Pursuant to Rule 10-9.1(f) of the Rules Regulating The Florida Bar, public 
notice of the hearing was provided on The Florida Bar’s website, in The Florida 
Bar News, and in the Tampa Bay Times.  The Standing Committee held a public 
hearing on February 22, 2013. 
Testifying on behalf of the petitioner was Twyla Sketchley, Chair of the 
Elder Law Section of The Florida Bar, and John Frazier, Chair of the Unlicensed 
                                          
 
1.  42 C.F.R. § 435.908. 
 
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Practice of Law Subcommittee of the Elder Law Section of The Florida Bar.  In 
addition to the petitioner, the Standing Committee received testimony from 
Carolyn Norton; Peggy Crabbe; Jack Rosenkranz, an attorney; Emma Hemness, an 
attorney; Gerald Hemness, an attorney; Amy O’Rourke; Jeff Brown, an attorney; 
and Sonja Kobrin. 
In addition to the testimony presented at the hearing, the Standing 
Committee received written testimony which has been filed with this Court.  Most 
of the testimony was from attorneys practicing in the area of elder law and 
Medicaid planning, and, by and large, reflected the opinion that a formal advisory 
opinion is needed to protect the public. 
DISCUSSION 
In June 2008, the Standing Committee considered a request for direction 
regarding the activities of nonlawyer Medicaid planners as a result of UPL 
complaints being investigated by The Florida Bar.  The Standing Committee voted 
to provide the following direction: 
The following activities of nonlawyer Medicaid planners 
would constitute the unlicensed practice of law: 
establishing irrevocable trusts, establishing qualified 
income trusts, and hiring an attorney to review, prepare, 
or modify documents for customers if payment to the 
attorney was through the company.  The committee voted 
that the following activities would have to be determined 
on a case-by-case basis: restructuring assets, counseling 
customers on the best way to get Medicaid approval, and 
advertising as an “elder counselor.”  The committee 
 
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voted that the hiring of an attorney to review, prepare, or 
modify documents for customers if there was a direct 
relationship with the attorney and payment was made 
directly to the attorney would not be the unlicensed 
practice of law. 
This direction was also provided to the Elder Law Section in May 2009.  So 
while the issue of nonlawyer Medicaid planning came before the Standing 
Committee previously, this is the first request for a formal advisory opinion. 
The issue of the activities of the Florida Department of Children and 
Families (DCF) staff was not part of the earlier direction provided by the Standing 
Committee or the request for a formal advisory opinion or this opinion.  
Nonlawyer DCF staff are government employees responsible for assisting in the 
application process.  DCF staff have an affirmative duty to tell a Medicaid 
applicant about Medicaid trusts and other eligibility laws and policies governing 
the structuring of income and assets when relevant to the applicant’s facts and 
financial situation.  When performed by DCF staff, these activities are not the 
unlicensed practice of law.  They will allow each applicant, and the applicant’s 
attorney, the ability to choose the course of action for qualifying for assistance that 
best suits the applicant.   
Each Medicaid planning activity posed by the petitioner will be addressed 
individually. 
Drafting of Personal Service Contracts 
 
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A personal service contract is one of the strategies used by Medicaid 
applicants to spend down assets so that their countable assets are within the 
allowable asset limit provided by law for Medicaid eligibility.  It is a contract for 
personal care services between the Medicaid applicant and a caregiver, often an 
adult child, for services that are not provided by the nursing home or assisted living 
facility.  As one witness noted, Florida law only requires nursing homes to give a 
little over two hours of care per day per resident, which leaves almost twenty-two 
hours of the day that the resident is not getting personal hands-on care.  The 
personal service contract provides for care during that other time.   
There are both legal and tax ramifications if a personal service contract is 
not done properly.  One witness testified that one of his clients had a nonlawyer 
service draft a personal service contract that was rejected by Medicaid, which 
resulted in the client not receiving Medicaid benefits for several months, costing 
the client thousands of dollars.  Another witness testified about a client who 
engaged a nonlawyer Medicaid planning service and was advised by the service 
that a personal service contract was needed and the contract that was prepared 
called for her son, who lived 12 hours away by car and visited her 2-3 times per 
year, to provide 26-27 hours of care per week.  The family is open to charges for 
Medicaid fraud and the client is no longer eligible for Medicaid benefits.  
 
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The payment for services under a personal service contract is based on the 
resident’s life expectancy and is made to the caregiver in a lump sum payment up 
front.  The payment for services under a personal service contract is treated by the 
Internal Revenue Service as a taxable event for the caregiver.  Without proper 
advice and planning, this may result in a huge tax liability.  The Standing 
Committee received testimony about nonlawyer Medicaid planners not properly 
advising of this potential tax liability.  This testimony demonstrates that the 
improper drafting of a personal service contract and improper tax advice and 
planning causes public harm.   
The preparation of a contract is the practice of law.  In The Florida Bar v. 
Sperry, 140 So. 2d 587, 597 (Fla. 1962), vacated on other grounds, 373 U.S. 379 
(1963), the Court held that “the practice of law also includes the giving of legal 
advice and counsel to others as to their rights and obligations under the law and the 
preparation of legal instruments, including contracts, by which legal rights are 
either obtained, secured or given away, although such matters may not then or ever 
be the subject of proceedings in a court.”  A personal service contract is a contract 
which imposes duties and obligations on both parties to the contract.  The 
caregiver agrees to provide a certain amount of care and specified services per 
week in exchange for payment for that care and services.  When a nonlawyer 
Medicaid planner drafts a personal service contract the nonlawyer is practicing 
 
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law.  It is the opinion of the Standing Committee that a nonlawyer’s drafting of a 
personal service contract constitutes the unlicensed practice of law.  
Preparation and Execution of Qualified Income Trusts 
If a Medicaid applicant’s gross monthly income exceeds a certain amount, a 
properly drafted Qualified Income Trust must be established and a Qualified 
Income Trust checking account must be opened at a bank in order for the applicant 
to qualify for Medicaid.  The income trust checking account must be funded each 
month with the income that exceeds the acceptable limit in order for the recipient 
to obtain Medicaid benefits.  If a Qualified Income Trust is not properly 
established or properly funded each month, then the Medicaid applicant will not be 
eligible for Medicaid. 
The Standing Committee received testimony about a nonlawyer improperly 
preparing a Qualified Income Trust resulting in Medicaid benefits being denied, 
which cost the client several months at the nursing home.  In another case, a 
nonlawyer incorrectly advised the client regarding the funding of a Qualified 
Income Trust, resulting in the client being denied Medicaid benefits.  The client 
had a $7,000 bill from the nursing home that she was unable to pay.  In other 
testimony, a nonlawyer improperly executed an irrevocable trust form to qualify 
the client for veterans benefits.  This strategy failed to allow the client to qualify 
for Medicaid benefits and caused a lengthy disqualification of Medicaid benefits.   
 
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The Court, in The Florida Bar re: Advisory Opinion–Nonlawyer Preparation 
of Living Trusts, 613 So. 2d 426 (Fla. 1992) (hereinafter “Living Trust case”), 
held that the assembly, drafting, execution, and funding of a living trust constitutes 
the practice of law, as does determining the need for a living trust and identifying 
the type of living trust most appropriate for the client.  The same would be true for 
a Qualified Income Trust.  A living trust is a legal document affecting an 
individual’s important legal rights.  A Qualified Income Trust is also a legal 
document affecting an individual’s important legal rights.  In order to protect those 
rights, the person preparing either type of trust must have a knowledge of the law 
greater than that possessed by the average citizen.  It is therefore the opinion of the 
Standing Committee that a nonlawyer’s determination of whether a Qualified 
Income Trust is necessary as well as the assembly, execution and funding of the 
trust constitutes the unlicensed practice of law. 
While the Court held that the preparation of a trust constitutes the unlicensed 
practice of law, the Court also found that gathering the necessary information for 
the living trust does not constitute the practice of law, and nonlawyers may 
properly perform this activity.  It is the opinion of the Standing Committee that this 
limited exception is not applicable here. 
The holding allowing the gathering of information in the Living Trust case 
was based on the Court’s holding in In re:  The Joint Petition of The Florida Bar 
 
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and Raymond, James and Associates, Inc., 215 So. 2d 613 (Fla. 1968).  Raymond, 
James dealt with the activities of securities brokers, a regulated industry.  The 
parties entered into a stipulation, approved by the Court, which set forth activities 
that constituted the unlicensed practice of law and activities that were authorized.  
In the context of the case, the Court held that “Raymond, James and Associates, 
Inc., its officers, agents and employees properly may . . . [s]olicit specific facts 
about customers’ or prospective customers’ assets.”  Id. at 614.  The holding did 
not allow for the gathering of any information, it allowed for the gathering of facts 
about a customer’s assets, an activity a licensed securities broker would need to be 
able to perform to conduct the business of selling securities. 
Similarly, in the Living Trust case, many of the nonlawyers involved in the 
sale of a living trust were licensed life insurance agents.  The life insurance agents 
sought to “ ‘preserve permissible existing rights (and duties) for qualified, 
regulated, non-lawyer insurance agents to participate in their proper roles in the 
creating of a living trust.’ ”  Living Trust, 613 So. 2d at 428.  The Court held that 
the opinion was “consistent with the ‘existing rights’ of life insurance agents.  Life 
insurance agents may properly sell life insurance that will fund a living trust and 
may offer advice on funding the trust from a financial standpoint.”  Id.  Clearly, a 
life insurance agent would have to be able to gather facts about a person’s assets to 
perform these activities.   
 
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When read in context, it is the opinion of the Standing Committee that the 
information a nonlawyer may gather is limited to information about the customer’s 
assets when such information is necessary for the nonlawyer to conduct a business 
for which they are licensed and regulated.  Support for this can be found in the 
Court’s holding in The Florida Bar v. American Senior Citizens Alliance, Inc., 689 
So. 2d 255 (Fla. 1997).  The nonlawyers in American Senior Citizens Alliance 
were in the business of selling living trusts.  They used high pressure sales tactics 
and targeted the elderly.  They also used the Court’s holding regarding gathering 
information in the Living Trust case to justify their activities.  The Court disagreed 
and found the reliance on that language “an unreasonable interpretation of the 
phrase ‘gathering the necessary information.’ ”  Id. at 259. 
Allowing nonlawyer Medicaid planners to gather information for the 
preparation of a Qualified Income Trust would also be an unreasonable 
interpretation of the phrase.  The testimony revealed that nonlawyer Medicaid 
planners are essentially unregulated, as there are no licensing, education, or 
advertising requirements.  Unlike the securities brokers in Raymond, James and 
Associates, Inc. or the life insurance agents in the Living Trust case, if the 
 
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nonlawyer cannot prepare the Qualified Income Trust, there is no legitimate reason 
for the nonlawyer to gather information about the customer’s assets.2 
Consequently, it is the opinion of the Standing Committee that a 
nonlawyer’s preparation, execution, funding of, and determination of the need for a 
Qualified Income Trust constitutes the unlicensed practice of law.  This includes 
the gathering of information for the Qualified Income Trust. 
Rendering Legal Advice Regarding the Implementation of Florida Law to 
Obtain Medicaid Benefits 
Medicaid eligibility, as part of Medicaid planning, involves a highly 
technical set of federal and state statutes and regulations, which in Florida is well 
over 3,000 pages.  Medicaid planning involves: (1) the assessment of all facts 
relevant to a client’s situation, including personal, financial, familial, and 
                                          
 
2.  The preparation of the Medicaid application is not the unlicensed practice 
of law as it is authorized by federal law.  Therefore, the preparation of the 
application was not part of the question presented to the Standing Committee.  To 
the extent that it is necessary for a nonlawyer to gather information about an 
individual’s assets to complete the application, that activity would also be 
authorized.  In addition, to the extent a federal or state statute or regulation allows 
a government employee to assist in the application process, the conduct is 
authorized and not the unlicensed practice of law.  As noted earlier, nonlawyer 
DCF staff are government employees responsible for assisting in the application 
process.  DCF staff has an affirmative duty to tell a Medicaid applicant about 
Medicaid trusts and other eligibility laws and policies governing the structuring of 
income and assets when relevant to the applicant’s facts and financial situation.  
When performed by DCF staff, these activities are not the unlicensed practice of 
law.  They will allow each applicant, and the applicant’s attorney, the ability to 
choose the course of action for qualifying for assistance that best suits the 
applicant. 
 
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historical; (2) application of those particular facts to the laws governing Medicaid; 
(3) developing a plan to structure or spend those assets in compliance with those 
laws or planning to reverse actions already taken to correct potentially 
unauthorized activity to minimize negative legal consequences; (4) drafting legal 
documents to execute the plan; and (5) assisting the client in correctly executing a 
particular plan.  
Medicaid planning includes making sure the applicant will meet the asset 
and income test for Medicaid eligibility.  An unmarried Medicaid applicant can 
own no more than $2,000 in “countable” assets.  Typical countable assets include 
bank accounts, stocks, bonds, annuities, and some types of life insurance.  The two 
primary non-countable assets are the homestead and one automobile.  For married 
applicants, if both spouses are applying for Medicaid, there is a $3,000 asset limit.  
If only one spouse is applying for Medicaid, the nursing home resident may only 
have $2,000 in assets, and the community spouse can have up to $113,640 in 
countable assets.  Federal and Florida law allow certain options to ensure that the 
spouse of the Medicaid applicant is not impoverished in attempting to obtain 
Medicaid benefits for an ill spouse.  Some of the strategies used to spend down 
assets include: (1) the use of a personal service contract; (2) the use of a special 
needs irrevocable pooled trust; (3) the use of a Medicaid qualifying annuity; (4) the 
purchase of income producing property; (5) the purchase of a homestead; (6) 
 
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gifting; (7) the purchase of other exempt assets; (8) repairs to the homestead; (9) 
payment of debts and expenses; (10) the purchase of an irrevocable funeral service 
or cremation contract; (11) a burial savings account; and (12) the purchase of an 
automobile. 
Proper Medicaid planning involves providing advice on the purchase and 
titling of exempt assets and the transfer of countable assets in excess of $2,000 to 
the community spouse.  Legal strategies to protect excess assets of the community 
spouse include: (1) assignment of rights to support (spousal refusal); (2) the use of 
a promissory note; and (3) a Medicaid qualifying annuity. 
The Court, in Sperry, developed the following test to determine whether an 
activity constitutes the practice of law: 
[I]n determining whether the giving of advice and 
counsel and the performance of services in legal matters 
for compensation constitute the practice of law it is safe 
to follow the rule that if the giving of [the] advice and 
performance of [the] services affect important rights of a 
person under the law, and if the reasonable protection of 
the rights and property of those advised and served 
requires that the persons giving such advice possess legal 
skill and a knowledge of the law greater than that 
possessed by the average citizen, then the giving of such 
advice and the performance of such services by one for 
another as a course of conduct constitute the practice of 
law. 
Sperry, 140 So. 2d at 591. 
 
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Assessing the facts relevant to a client’s situation, applying those facts to the 
laws governing Medicaid, developing a plan to structure or spend the client’s 
assets in compliance with those laws, and drafting legal documents to execute the 
plan, would constitute the practice of law under the Sperry test.  It is the opinion of 
the Standing Committee that when a nonlawyer engages in these activities or 
renders legal advice regarding the implementation of Florida law to obtain 
Medicaid benefits the nonlawyer is engaged in the unlicensed practice of law.  This 
includes advising an individual on which legal strategy or strategies under federal 
or Florida law are appropriate given the individual’s factual circumstances. 
ATTORNEY INVOLVEMENT 
Some nonlawyer Medicaid planning companies claim to have relationships 
with lawyers who draft the legal documents for the company’s clients.  Testimony 
indicated that this sometimes occurred with the client never meeting with or 
speaking to the attorney or only briefly speaking to the attorney.  Other companies 
advertise that they use a team of professionals, including an attorney, to assist the 
client.  Having a lawyer draft legal documents for the company’s clients would still 
be an unlicensed practice of law problem for the company under Nonlawyer 
Preparation of Living Trusts, and American Senior Citizens Alliance.  It is the 
opinion of the Standing Committee that unless the client establishes an 
independent attorney-client relationship with the attorney, payment from the client 
 
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is directly to the attorney, and the initial determination that the particular legal 
document or Medicaid planning strategy is appropriate for the client given the 
client’s particular factual circumstances is the determination of the attorney, then 
the company would be engaged in the unlicensed practice of law. 
THE FLORIDA BAR V. BRUMBAUGH 
Two of the activities presented to the Standing Committee involve the 
preparation of documents – the personal service contract and the Qualified Income 
Trust.  When discussing the preparation of documents, the Court often looks to The 
Florida Bar v. Brumbaugh, 355 So. 2d 1186 (Fla. 1978).  For the following reasons 
the Standing Committee is of the opinion that Brumbaugh should not be used as 
justification to allow the sale of a personal service contract kit or Qualified Income 
Trust kit in Medicaid eligibility matters. 
Marilyn Brumbaugh operated a secretarial service where she offered to do 
typing services for various do-it-yourself legal matters.  She also sold legal forms 
and kits.  Following the holdings of other states, the Court held that a nonlawyer 
may sell legal kits and general information containing forms and may complete the 
forms with information provided by the individual in writing.  In so holding, the 
Court noted that  
Although there is a danger that some published material 
might give false or misleading information, . . . [w]e 
must assume that our citizens will generally use such 
publications for what they are worth in the preparation of 
 
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their cases, and further assume that most persons will not 
rely on these materials in the same way they would rely 
on the advice of an attorney or other persons holding 
themselves out as having expertise in the area.  The 
tendency of persons seeking legal assistance to place 
their trust in the individual purporting to have expertise 
in the area necessitates this Court’s regulation of such 
attorney-client relationships. . . . 
Id. at 1193. 
Although Brumbaugh found that nonlawyers could sell forms and kits and 
complete them with information provided in writing by the customer, the facts 
showed that Ms. Brumbaugh went beyond the mere typing of the forms.  As found 
by the Court, her customers relied on her to properly prepare the necessary forms, 
she advised clients as to various remedies available to them or otherwise assisted 
them in preparing the necessary forms, she inquired into or answered questions of 
her clients to determine which forms would be necessary and advised how to best 
fill out the forms.  Because she placed herself in a position of reliance and gave her 
customers advice, the Court held that Ms. Brumbaugh was engaged in the 
unlicensed practice of law.   
Brumbaugh was decided in 1978, a time when the legal information in 
question was disseminated in print, not on the internet.  While the Court could 
assume “that our citizens will generally use such publications for what they are 
worth . . . and further assume that most persons will not rely on these materials . . 
.,” the same cannot be said to be true now.  Id.  Included in the written testimony 
 
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are website screen shots from various nonlawyer Medicaid planning companies.  
Some companies indicated that attorneys are not necessary for Medicaid planning, 
while others hold themselves out as Medicaid “experts” or “specialists” at the same 
time they state how complex and tricky the Medicaid rules and regulations are.3  
The nonlawyer companies are placing themselves in a position where the customer 
will not only rely on their information and expertise, but will also trust that the 
information and services they are receiving are true and correct.  Clearly, the 
nonlawyers are putting themselves in a position of reliance and the consuming 
public has no reason to believe otherwise. 
The use of the internet, the complexity of Medicaid planning and the harm 
that can result from nonlawyers giving improper advice, more fully discussed 
below, leads the Standing Committee to the conclusion that the use of legal kits 
and forms should not be allowed in this area.  Although allowed since 1978, 
whether an activity is the unlicensed practice of law must be viewed in light of the 
circumstances of each case.  “[A]ny attempt to formulate a lasting, all 
                                          
 
3.  The Court has held that it constitutes the unlicensed practice of law for a 
nonlawyer to advertise that his or her company specializes in legal areas as this 
implies expertise in the legal field.  The Florida Bar v. Davide, 702 So. 2d 184 
(Fla. 1997).  Consequently, it is the opinion of the Standing Committee that to the 
extent that a nonlawyer advertises that he or she is a Medicaid expert or specialist 
or in such fashion as to induce reliance on the nonlawyer to assist the individual 
with their Medicaid planning, the nonlawyer is engaged in the unlicensed practice 
of law.  
 
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encompassing definition of ‘practice of law’ is doomed to failure ‘for the reason 
that under our system of jurisprudence such practice must necessarily change with 
the everchanging business and social order.’ ”  Id. at 1191-92 (citations omitted).  
The changes that have taken place since 1978, especially the use of the internet, 
necessitate a change under the circumstances present here. 
HARM AND THE POTENTIAL FOR HARM 
As noted earlier, the testimony revealed that nonlawyer Medicaid planners 
are essentially unregulated, as there are no licensing, education, or advertising 
requirements.  Because of this lack of regulation, nonlawyer Medicaid planners 
include a disbarred Florida lawyer, an individual who lost his securities license for 
fraudulent practice, and a life insurance agent who was convicted of two felonies 
and lost his insurance license.   
Testimony described the type of harm caused by nonlawyer Medicaid 
planners which includes denial of Medicaid eligibility, exploitation, catastrophic or 
severe tax liability, and the purchase of inappropriate financial products 
threatening or destroying clients’ life savings.  The potential for public harm is 
even greater when the nonlawyers put themselves in a position of reliance and 
advising the customer as to the proper course of action to take.  In order to protect 
the public from harm, it is the opinion of the Standing Committee that the activities 
 
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described herein constitute the unlicensed practice of law and should not be 
authorized. 
CONCLUSION 
It is the opinion of the Standing Committee that it constitutes the unlicensed 
practice of law for a nonlawyer to draft a personal service contract and to 
determine the need for, prepare, and execute a Qualified Income Trust including 
gathering the information necessary to complete the trust.  Moreover, a nonlawyer 
should not be authorized to sell personal service or Qualified Income Trust forms 
or kits in the area of Medicaid planning. 
It is also the opinion of the Standing Committee that it constitutes the 
unlicensed practice of law for a nonlawyer to render legal advice regarding the 
implementation of Florida law to obtain Medicaid benefits.  This includes advising 
an individual on the appropriate legal strategies available for spending down and 
restructuring assets and the need for a personal service contract or Qualified 
Income Trust.   
It is the position of the Standing Committee that a nonlawyer’s preparation 
of the Medicaid application itself would not constitute the unlicensed practice of 
law as it is authorized by federal law.  As noted earlier, it is also not the unlicensed 
practice of law for DCF staff to tell Medicaid applicants about Medicaid trusts and 
other eligibility laws and policies governing the structuring of income and assets 
 
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when relevant to the applicant’s facts and financial situation.  This proposed 
advisory opinion is the Standing Committee on Unlicensed Practice of Law’s 
interpretation of the law. 
Respectfully Submitted, 
/s/ C.C. Abbott by Jeffrey T. Picker 
C.C. Abbott, Chair 
Standing Committee on 
Unlicensed Practice of Law 
The Florida Bar 
651 E. Jefferson Street 
Tallahassee, FL 32399-2300 
(850) 561-5840 
Fla. Bar No. 467065 
Primary Email: upl@flabar.org 
/s/ Jeffrey T. Picker 
Jeffrey T. Picker 
Fla. Bar No. 12793 
/s/ Lori S. Holcomb 
Lori S. Holcomb 
Fla. Bar No. 501018 
The Florida Bar 
651 East Jefferson Street 
Tallahassee, Florida 32399-2300 
(850) 561-5840 
Primary Email: jpicker@flabar.org 
Secondary Email: upl@flabar.org