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David C. Ashburn is Managing Shareholder of the Tallahassee Office. He provides state and federal regulatory counsel and administrative litigation representation to clients in the health care, managed care, financial services and insurance-industries. His understanding of governmental regulatory processes also enables him to counsel buyers and sellers of regulated businesses and the lenders and private equity groups that finance those transactions. The types of clients that David advises include:

  • Institutional health care providers such as hospitals, ambulatory surgery centers, assisted living facilities, nursing homes, home health agencies, durable medical equipment providers, sober homes and hospices
  • Continuing care retirement communities
  • Financial services providers, including financial advisers and brokers
  • Insurers, health maintenance organizations (HMOs) and third party administrators (TPAs)
  • Lenders and investors, including financial institutions, private equity funds and real estate investment trusts
  • Physician practices, including large multi-specialty practices


  • Health care transactions
  • Government regulation
  • Government procurement
  • Administrative litigation
  • Insurance regulation
  • Financial services



  • Represented world renowned health system in proposal for and implementation of transactions pursuant to which the health system assumed operations of a non-profit health system and a tax district hospital system.
  • Represented the agent for the owner of three continuing care retirement communities in the replacement of management and installation of a new investment advisor.
  • Represented agent/special servicer for consortium of lenders in connection with borrower default on loan secured by a continuing care retirement community.
  • Represented, in two separate acquisition transactions totaling more than $150 million, a health system that contracted with managed care payors for the provision of post-acute care services, including nursing services, home health services and durable medical equipment and related services.
  • Represented a hospital system in obtaining regulatory approval for the construction of a new hospital.
  • Represented a national provider of mental health services in obtaining regulatory approval for a new psychiatric hospital.
  • Represented a national senior housing provider that operates more than 100 assisted living facilities in Florida in numerous licensure and financing transactions over a period of more than 15 years.
  • Represented a company acting as investment advisor and agent for owner of three continuing-care retirement communities in obtaining refinancing in excess of $90 million.
  • Represented a private equity fund in the acquisition of a nurse staffing company with operations in all 50 states.
  • Represented national bank in connection with newly enacted limitations on banking practices.
  • Represented health care providers in connection with investigations by the Florida Agency for Health Care Administration, including the Florida Medicaid Program; and the Florida Department of Health.
  • Represented institutional and individual health care providers in connection with licensing by the Florida Agency for Health Care Administration and the Florida Department of Health.
  • Represented Health Maintenance Organizations and insurers in connection licensing and investigations by the Florida Office of Insurance Regulation.
  • Represented financial services firms and their regulated professionals in licensing and investigations by the Florida Office of Financial Regulation.
  • Represented bidders in preparation of responses to state issued procurement solicitations.
  • Represented awarded contractors in contract negotiations with government agencies.
  • Represented contractors in implementation of government contracts, including in disputes regarding compliance with contract requirements.
  • Represented bidders in bid protest proceedings.
  • Represented institutional health care providers in challenges to actions by regulators seeking to impose sanctions.
  • Represented association in connection with rule challenge.
  • Represented brokers against whom regulators sought to impose sanctions.
  • Represented regulated professionals in connection with disciplinary matters instituted by professional boards.
  • Represented buyers in acquisitions of insurers, including Form A and related filings.
  • Represented insurers, health maintenance organizations and third-party administrators in connection with licensure and change of control issues, and other regulatory matters.
  • Represented property and casualty insurers, health insurers and health maintenance organizations in matters involving compliance with the regulation of investments and required surpluses.
  • Represented financial services firms in connection with licensure and disciplinary issues for investment advisers.
  • Advised bank regarding implementation of policies and procedures to comply with newly enacted Florida laws.

Recognition & Leadership

  • Listed, The Best Lawyers in America, Government Relations Practice; Health Care Law; Administrative/Regulatory Law, 2008-2024
  • Selected, City & State Florida, “Health Care Power 100,” 2022
  • Team Member, a Law360 “Product Liability Practice Group of the Year,” 2021-2022
  • Listed, Super Lawyers magazine, Florida Super Lawyers, 2017-2018
  • Team Member, a U.S. News - Best Lawyers® "Government Relations Law Firm of the Year," 2014
    • Ranked, Tier 1 – Government Relations, Tallahassee Metropolitan Area
  • Member, American Bar Association
  • Member, American Health Lawyers Association


  • J.D., cum laude, Florida State University College of Law, 1987
    • Member, Florida State University Law Review
  • B.S., Business Management, magna cum laude, Florida State University, 1984
  • Florida