fresh NP/PA's that are coming out of school. They don't really have a whole lot of experience. Even if they aren't "really" being supervised by doctors they can at least look at the doctor's charts to see what they do in certain situations or ask the doctor questions on a difficult case.
I'm in my first year of practice out of residency and there have been numerous occasions where being around a senior physician in my practice has been helpful. That's after 4 years of school and 3 years of residency. I can't imagine just practicing on my own out of med school.