Controlled Substances Security Manual

An Informational Outline of the

Controlled Substances Act of 1970
1

United States Department Of Justice 

Drug Enforcement Administration

A SECURITY OUTLINE OF THE

CONTROLLED SUBSTANCES ACT OF 1970

Robert C. Bonner

Administrator of Drug Enforcement

Gene R. Haislip

Director

Office of Diversion Control

This manual has been prepared by the Office of Diversion Control to assist drug handlers in their 

understanding of the Controlled Substances Act of 1970 and its implementing regulations pertaining to 

security.
2

United States Department of Justice

Drug Enforcement Administration

DRUG SECURITY MANUAL

An Informational Outline of the

Controlled Substances Act of 1970 

Revised May 1991
3

A MESSAGE FROM THE ADMINISTRATOR

The safeguarding of controlled substances is a problem confronting all manufacturers, 

distributors, pharmacies, and other drug handlers. Federal law limits the handling of these 

substances and by regulation requires that they be properly safeguarded at all times. The drug 

Enforcement Administration (DEA) is responsible for ensuring that effective security is 

maintained. The drug industry is responsible for establishing and maintaining effective controls 

and procedures to prevent diversion.

This manual outlines the steps needed to establish a competent security system which deters 

diversion and reduces accessibility for potential abusers. Further guidance may be obtained from 

one of DEA’s Field Diversion (listed at the end of this manual) or from the Office of Diversion 

Control located at our Headquarters in Washington, D.C.

Robert C. Bonner

Administrator of Drug Enforcement 
4

CONTENTS

Page

Preface.......................................................................... 5

Application of State and Federal Law.................................... 6

Drug Enforcement Administration....................................... 7

Schedules of Controlled Substances...................................... 8

General Security Requirements:..........................................

Substantial Compliance............................................ 10

Request for Review................................................. 11

Waiver................................................................ 11

Changes............................................................ 11

Security Requirements for Non-Practitioners:.........................

Minimum Standards: Schedules I&II........................... 12

Minimum Standards: Schedules III, IV &V.................... 13

Collocating Schedules I&II with III-V........................... 14

Multiple Storage Areas............................................. 14

Accessibility to Storage Areas.................................... 15

Manufacturing and Compounding Areas........................ 15

Public Warehouses.................................................. 15

Common or Contract Carriers.................................... 16

Theft or Loss......................................................... 17

Other Security Controls:...........................................

Good Faith Inquiry....................................... 17

Suspicious Orders........................................ 17

Controlled Substance Samples......................... 17

Distributing Through Agents........................... 17

Employees:..........................................................

Screening.................................................. 18

Responsibility to Report Diversion.................... 18

Illicit Activities........................................... 19

Narcotics Treatment Programs........................................... 20

Security Requirement for Practitioners................................. 21

Minimum standards................................................ 21

Other Security Controls............................................ 22

Employee or Agent of Practitioner............................... 22

Loss or Theft......................................................... 22

Blank Prescriptions and DEA Order Forms..................... 22

Additional Security Measures............................................. 23

DEA Diversion-Staffed Domestic Field Office............................ 25
5

PREFACE

Over 770,000 manufactures, distributes, pharmacies, and other handlers of controlled substances 

are registered with DEA. The vast majority of this group complies with controlled substances 

laws and regulations in a responsible and law abiding manner, and has self-regulation programs 

consistent with the highest standards. DEA relies upon these programs and concentrates its 

resources on the more serious problems of both practitioner and non-practitioner diversion.

Handlers of controlled substances must be aware of the various diversion methods, which 

include illegal sale, falsified prescription orders, burglary, employee theft, loss in-transit, 

robbery, and customer/patient theft. However, willful and intentional diversion by 

manufacturers, distributors and dispensers is another source of diversion.

A critical first step in diversion prevention is employee screening; concern with personnel 

security must start before and employee is hired. Pre-employment screening to identify potential 

security problems is important when choosing new employees to work in or around areas where 

controlled substances are handled. The screening program should include a careful evaluation of 

the applicant’s personal and previous employment references. Criminal background checks with 

local law enforcement authorities and with DEA are equally important. Similar precautionary 

measures should be taken before transferring established employees to new jobs in areas where 

controlled substances are manufactured, processed, stored, shipped, dispensed, or handled in any 

way. 

The areas which must be protected against theft and diversion vary greatly depending on the type 

of business. Manufacturers must be alert for pilferage at every level of drug handling, from the 

receipt of raw material, through all phases of manufacturing and processing, to finished product 

storage and shipping. They must be watchful for pilferage of production rejects and of returned 

or damaged merchandise. They must be alert to the theft of dosage form drugs, bulk raw 

material, equipment, and even chemical precursors. They must be certain that all controlled 

substances are secure throughout the entire manufacturing and distribution process. Many of the 

concerns also apply to controlled substance distributors.

Security problems confronting a pharmacist are no less serious. The pharmacist must secure the 

controlled substances storage and prescription compounding areas. As in the case of larger drug 

handlers, a key factor in protecting against theft and diversion is limiting employee access. 

Access to all controlled substances should be restricted to the minimum number of employees 

needed to perform the tasks related to these drugs.
6

APPLICATION OF STATE AND FEDERAL LAWS

Nothing in this manual shall be construed as authorizing or permitting any person to do any act 

which is not authorized of permitted under other Federal or state laws. In addition, none of the 

policy and information in this manual may be construed as authorizing or permitting any person 

to do any act in violation of Title 21, Chapter II of the Code of Federal Regulations (21 CFR Part 

1300 to End). Printed copies of the complete regulations implementing the Controlled 

Substances Act of 1970 may be obtained from the Superintendent of Documents, U.S. 

Government Printing Office, Washington, DC 20402. Proposed and finalized amendments to the 

regulations are published in the Federal Register.

In many cases state law is more stringent than Federal law and must be complied with in addition 

to Federal law. This manual is an informational outline of Federal law covering specific security 

situations as set forth in the Federal Regulations.
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DRUG ENFORCEMENT ADMINISTRATION

DEA is the lead Federal law enforcement agency responsible for enforcing the Controlled 

Substances Act (CSA). Established in 1973, DEA was the product of a merger of the Bureau of 

Narcotics and Dangerous Drugs, the Office for Drug Abuse Law Enforcement, the Office of 

National Narcotic intelligence, elements of the Bureau of Customs, and those functions of the 

Office of Science and Technology which were drug enforcement-related. In carrying out its 

mission, DEA cooperates with other Federal agencies, state, local, and foreign governments, 

private industry, professional groups, and other organizations.

Between 1914 and 1970, Congress enacted more than 50 pieces of legislation relating to the 

control and diversion of drugs. Most of these diverse laws were gathered into one piece of 

legislation, the CSA, which became effective May 11, 1971. A key element of this law is to 

improve control over the manufacture, distribution, and dispensing of controlled substances by 

providing a "closed" system for legitimate handlers of these drugs. Such a closed system deters 

the diversion of these drugs out of legitimate channels into illicit markets.

The information presented here should acquaint drug handlers with security requirements set up 

under the CSA, the Diversion Control Amendments of the Comprehensive Crime Control Act 

1984, and the Code of Federal Regulations.

The drugs and drug products, i.e. controlled substances, that come under the jurisdiction of the 

CSA are divided into five schedules. Some examples in each schedule are outline below. For a 

complete listing of controlled substances contact any DEA office listed at the end of this manual.
8

SCHEDULES OF CONTROLLED SUBSTANCES

The CSA places each controlled substance -- drug or other substance -- into one of five 

schedules based on the substance’s medical use, potential for abuse, and safety or dependence 

liability. The Act also allows substance to be added t or removed from a schedule to another, the 

basis upon whish substance are places into each of the five schedules is explained below, and 

examples of drugs’ or other substances within the schedules are listed.

Schedule I (CI) Substance

The controlled substances in this schedule are those that have no accepted medical use in the 

U.S., are not accepted as safe for use under medical supervision, and have a high abuse potential. 

Some examples are heroin, marijuana, LSD, peyote, mescaline, psilocybin, MDA, MDMA, 

ketobemidone, acetylmethadol, fenethylline, tilidine, methaqualone, and certain fentanyl and 

merperidine analogs.

Schedule II (CII) Substances

The controlled substances in this schedule have a high abuse potential with severe psychological 

or physical dependence liability, but have accepted medical use in the U.S. CII controlled 

substances consist of certain narcotic, stimulant, and depressant drugs. Some examples of CII 

narcotics are: opium, morphine, codeine, hydromorphone (Dilaudid)1, methadone, meperidine 

(Demerol), cocaine, oxycodone (Percodan), anileridine (Lertine), the immediate precursor 

phenylacetone (P-2-P), and oxymorphine (Numorphan). Also in CII are the stimulants 

amphetamine (Dexedrine), methamphetamine (Desoxyn), phenmetrazine (Preludine), and 

methylphenidate (Ritalin); the depressants amobarbital, pentobarbital, secobarbital; and fentanyl 

(Sublimaze), etorphine hydrochloride, and phencyclidine (PCP).

Schedule III (CIII) Substances

The controlled substances in this schedule have an abuse potential and dependence liability less 

than those in CI and CIII, and have an accepted medical use in the U.S. They include 

preparations containing limited quantities of certain narcotic drugs, and other nonnarcotic drugs 

such as: derivatives of barbituric acid, except those that are listed in another schedule, 

glutethimide (Doriden), methyprylon (Noludar), nalorphine, benzphetamine, chlorphentermine, 

clortermine, and phendimetrazine.

Schedule IV (CIV) Substances

The controlled substances in this schedule have an abuse potential and dependence liability less 

than those listed in CIII and have an accepted medical use in the U.S. They include such drugs 

as: barbital, phenobarbital, methylphenobarbital, chloral hydrate, ethchlorvynol (Placidyl), 

 

1 Examples of trademark products appear in parentheses. Scheduling applies to all similar drug products 

of all other pharmaceutical manufactures within each generic drug classification.
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ethinamate, (Valmid), paraldehyde, methohexital, fenfluramine, diethylproprion, phentermine, 

chlordiazepoxide (Librium), diazepam (Valium), oxazepam (Serax), clorazepate (Tranxene), 

flurazepam (Dalmane), lorazepam (Ativan), alprazolam (Xanax), temazepam (Restoril), 

triazolam (Halcion), mebutamate, detropropoxyphene (Darvon), and petazocine (Taiwin).

Schedule V (CV) Substances

The controlled substances in this schedule have an abuse potential and dependence liability less 

than those listed in CIV and have an accpeted medical use in the U.S. They are often available 

without prescription, and include preparations containing limited quantities of certain narcotic 

drugs generally for antitussive and antidiarrheal purpose. Buprenorphine is also a CV drug. 
10

GENERAL SECURITY REQUIREMENTS

Substantial Compliance

The general security requirements set forth in the Code of Federal Regulations (CFR) require all 

registrants and applicants for registration to provide effective physical security controls and 

operating procedures to guard against theft and diversion of controlled substances. Substantial 

compliance with these requirements and standards set forth in Title 21 CFR Sections 1301.72-

1301.76 may be deemed sufficient by DEA after evaluation of the overall security system and 

needs of the individual applicant or registrant considering the following factors: 

1. Type of activity conducted (e.g., processing of bulk chemicals, preparing dosage forms, 

packaging, labelling, cooperative buying, etc.).

2. Type and form of controlled substances (e.g., bulk liquids or dosage units, usable powders or 

non-usable powders, etc.).

3. Quantity of controlled substances.

4. Location of premises/security needs (e.g., high vs. low crime areas, waterfront boundaries, 

adjacent/attached buildings, urban vs. suburban vs. rural areas, etc.).

5. Type of building construction/general characteristics (e.g., metal curtain, wood frame, 

masonry, number and type of doors, windows and other openings, etc.).

6. Types of safes/vaults/secure enclosures (e.g., automatic storage and retrieval, construction of 

vaults and cages, modular vaults, container weight and type, UL listing/GSA rating, etc.).

7. Type of closure (e.g., built-in combination locks, key locks, padlocks, self closing and 

locking day gates, vault doors and frames, etc.).

8. Key and lock control (e.g., adequacy, accountability, routine changing, issuance and control 

procedures, logging, central repository, combination security, etc.).

9. Alarm systems (e.g., adequacy of supervision, method of signal transmission, proprietary vs. 

central station vs. police connection, adequacy of standby power sources, maintenance and 

testing, signal and response time, etc.).

10. Public access/perimeter fencing (e.g., adequacy of gates and fencing, if any, control at 

entry/exit points, parking location and proximity to facility, extent of unsupervised public 

access to the facility, etc.).

11. Supervision of employees (e.g., access control to manufacturing and storage areas, 

identification media and systems, control of and accountability for identification, 

responsibilities of employees, etc.).
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12. Guest/visitor procedures (e.g., access control, logging procedures, identification media, 

internal movement control, etc.).

13. Local police/security force (e.g., availability, legal obligation to respond, frequency of patrol, 

adequacy of training, alarm response time, size of force, etc.).

14. Adequacy of internal systems for monitoring controlled substances (e.g., storage security, 

common or contract carrier security, etc.).

Request for Review

Any applicant or registrant who wants to know whether or not a proposed security system 

substantially complies with DEA requirements as prescribed by the regulations may submit 

plans, blueprints or sketches of the proposed system to the appropriate DEA Field Office. Even 

with preliminary Field Office approval of the proposed system, final approval will only be given 

at the time the system is completed and can be inspected at the location where it is to be used.

Waiver 

Physical security controls at locations registered and approved under the former Harrison 

Narcotic Act (HNA) or the former Narcotic Manufacturing Act (NMA) of 1960 as of April 30, 

1971, are considered to be in compliance with present security regulations. However, new or 

modified facilities or work and storage areas which have not previously been approved by DEA 

(even if these facilities are similar to those previously approved by the Bureau of Narcotics and 

Dangerous Drugs) will not necessarily be deemed in compliance with the security regulations. 

Furthermore, any change in ownership or control after April 30, 1971 of locations registered and 

approved under the former HNA or the former NMA would negate this waiver.

Changes

It is important to note that physical security controls and procedures must be expanded and 

extended accordingly if existing systems become inadequate as a result of a controlled substance 

being transferred to a different schedule, being placed in a schedule, or if there is a significant 

increase in the quantity of controlled substances in the possession of a registrant during normal 

business operations.
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SECURITY REQUIREMENTS FOR NON-PRACTITIONER

Non-practitioners include manufacturers, packagers, labelers, distributors, importers, exporters, 

narcotic treatment programs, and compounders for narcotic treatment programs.

Minimum Standards: Handlers of CI&II Controlled Substances

Small quantities of CI&II raw materials, bulk materials awaiting further processing, and 

finishing products must be stored in an Underwriters Lab (UL) listed burglary-resistant safe with 

a Group 1-R lock, or a GSA Class V rated security container, or the equivalent, which affords the 

following security protection:

1. 30 man minutes against surreptitious entry,

2. 10 man minutes against forced entry,

3. 20 man hours against lock manipulation,

4. 20 man hours against radiological attack.

This safe or security container must be bolted, strapped, or otherwise securely fastened to the 

floor or wall in such a way that it cannot be readily removed if it weighs less than 750 pounds. 

Depending upon the quantities and types of controlled substances stored, this safe or security 

container must be equipped with an alarm system which upon attempted unauthorized entry 

transmits a signal directly to a central protection company, a local or state police agency which 

has a legal obligation to respond, a 24-hour proprietary central station operated by the registrant, 

or such other protection as DEA may approve.

Large quantities of such controlled substances which do not permit storage in a safe or security 

container may be stored in a vault meeting the following specifications or equivalent, if 

constructed after September 1, 1971:

1. The walls, floor and ceiling are constructed of at least eight inches of reinforced concrete or 

other substantial masonry reinforced vertically and horizontally with #4 (half inch) steel rods 

tied six inches on center, or UL listed modular vault panels.

2. The door and frame unit are UL listed burglary-resistant, GSA Class V rated or equivalent, 

i.e., multiple position Group 1-R combination lock, relocking device, special metal alloy that 

resists carbide drilling, and in general affords the overall security protection set forth above 

for safes and security containers.

3. If operations require the vault/container to remain open to frequent access, the door is 

required to be equipped with a day gate which is self-closing and self-locking. If the 

operation requires only that the vault be opened infrequently, such as to remove raw material 

in the morning and return it at night, and is always relocked immediately after use, a day gate 

is not required.

4. The walls or perimeter are equipped with an alarm system which upon attempted 

unauthorized entry must transmit an alarm directly to a central protection company, local or 
13

state police agency which has a legal obligation to respond, a 24-hour proprietary central 

station operated by the registrant, or such other protection as DEA may approve. If necessary 

due to local condition or other problems, holdup buttons may be required to be placed at 

strategic points of entry or exit from the perimeter.

5. The door is equipped with a contact switch(es) and there is complete electrical lacing of the 

walls, floors and ceiling, sensitive ultrasonic or infrared sensors within, a sensitive sound 

accumulator system, or other such devices or equipment designed to detect unauthorized 

entry as may be approved by DEA.

Vaults constructed before or under construction on September 1, 1971 and approved by the 

Bureau of Narcotics and Dangerous Drugs or its predecessor agencies may be of substantial 

construction with a steel door, combination or key lock, and alarm system.

NOTE: DEA evaluates a registrant security system on an element-by-element and on and overall 

basis, measuring the system against the potential theft or diversion problem the registrant might 

encounter at the registered location. Thus, DEA may approve a security system although some of 

the specific standards are not met, e.g., a registrant who provides 24-hour guard surveillance may 

not need the full alarm protection as set forth in the regulations. A registrant who handles large 

quantities of in-process liquids running through a pipe system may not need to vaults this form of 

controlled substances because of the difficulties in containing or diverting the liquids and their 

possible non-restrictability. The minimum standards and general security requirements set forth 

above and below are used by DEA as a basis for making decisions on the specific security needs 

of each registrant.

Minimum Standards: Handlers of CIII-V Controlled 

Small quantities of C III-V controlled substances may be stored in a UL listed burglary-resistant 

safe or a GSA Class V rated security container or equivalent which complies with the 

requirements for storing C I& II substances. Large quantities of such controlled substances 

which do not permit storage in a safe or security container may be stored in: 

1) A building or area within a building having perimeter security which limits access during 

working hours, provides adequate security after working hours, and has the following 

security controls:

a) An electronic alarm system as described above for C I&II controlled substances;

b) Substantially constructed self-closing and self- locking doors employing either multipleposition combination or key lock type locking mechanisms (NOTE: in lieu of self 

Βlocking/closing doors, a door which is kept closed and locked at all times when not in 

use, and when in use is kept under direct observation of a responsible employee of the 

registrant is permitted); and

c) Requisite key control, combination limitations, and change procedures. 
14

2) A cage within a building on the premises meeting the following specifications:

a) Walls constructed of not less than ten gauge steel fabric mounted on steel posts which 

are:

i) At least one inch in diameter;

ii) Set in concrete or installed with lag bolts which are pinned or brazed; and 

iii) Placed no more than ten feet apart with horizontal one and one half-inch 

reinforcement every 60 inches.

b) Mesh construction with openings not more than two ands one half inches across the 

square;

c) A ceiling constructed of the same material or walls extending to and firmly attached to 

the structural ceiling;

d) A door constructed of the same gauge steel fabric on a metal door frame in a metal door 

flange; and 

e) An alarm system protecting the perimeter and interior as described above.

3) An enclosure of masonry or other such materials or secure storage area which has been 

approved by DEA.

Collocating CIII-V with CI&II Substances

Schedule III-V controlled substances may be stored with CI&II substances under the security 

measures required for those substances. CIII-V substances may be stored in the vault provided 

access to the area is not substantially increased and that permission for such storage is obtained 

in advance from the appropriate DEA Field Office.

Multiple Storage Areas

On occasion it may be necessary for non-practitioner registrants to handle several classes of 

controlled substances separately. Some examples of these special circumstances are damaged 

goods, returned goods, goods in processing, etc. In these circumstances, controlled substances 

may be stored apart from the main stock of controlled substances, provided that each storage area 

complies with the security requirement set forth in the previously described minimum standards.
15

Accessibility to Storage Areas

In order to minimize the possibility of diversion, the registrant must limit access to the storage 

areas for controlled substances to a minimum number of authorized employees. Although not 

specifically required, it may be necessary to institute some type of security pass system if the 

size, type, or other characteristics the firm dictate the need. Where it is necessary for employee 

or non-employee maintenance personnel, business guests, or other visitors to have access to or to 

pass through a controlled substances storage area, the registrant needs to provide authorization to 

those individuals. The authorization should be in writing, and the specially authorized 

individuals should be held under adequate observation during the time they are in the storage 

area.

Manufacturing and Compounding Areas

Manufacturing activities (include processing, packaging, and labelling) involving controlled 

substances listed in any schedule, and all compounders, must implement the following security 

controls:

1. All in-process substances must be returned to the controlled substances storage area at the 

termination of the process. If the process is not completed at the end to the work day, the 

processing area or tanks, vessels, bins, or bulk containers holding controlled substances must 

be securely locked inside an area or building which affords adequate security.

2. Manufacturing activities with controlled substances must be conducted in an area(s) with 

limited access and must be kept under surveillance by and employee(s) designated in writing 

by management to be responsible for the area. The designated employee(s) must be able to 

provide continuous surveillance of the area in order that unauthorized persons may not enter 

or leave the area without the designated employee’s knowledge. Access may be limited by 

the use of physical dividers such as walls or partitions, by traffic control lines, or restricted 

space designations.

3. During controlled substances production, the manufacturing areas should be accessible only 

to those employees necessary for efficient operation. If it becomes necessary for employee or 

non-employee maintenance personnel, business guests, or visitors to be present or to pass 

through manufacturing areas during production, it is in the best interest of the registrant to 

have an employee designated in writing as being responsible for providing adequate 

surveillance of the area.

Public Warehouses

Registrants who store controlled substances in public warehouses are responsible for selecting a 

facility that will provide adequate security to guard against losses and thefts. Whenever possible, 

the registrant should select a storage warehouses or terminal which meets the physical security 

requirement and controls set forth above and below, with the knowledge that it is the registrant, 

not the warehouseman, who is responsible for the security of the controlled substances. Other 

aspects of warehouse or terminal security which the registrant might consider are:
16

1. Adequacy of fencing, lighting, electronic security, checkpoints, and other perimeter controls;

2. Type of order tracking or tracing system in use, if any;

3. Personnel screening, hiring, and control programs;

4. Hours of operation;

5. Use of contract or proprietary guards;

6. Procedures and systems in use to control inbound and outbound tractors, trailers, containers, 

etc.;

7. Yard control of drivers, tractors, trailers, containers, etc.

Common or Contract Carriers

Registrants are also responsible for selecting common or contract carriers that will provide 

adequate security against in-transit losses or thefts. If the registrant has substantial quantities of 

controlled substances lost or stolen in transit when using a particular common or contract carrier, 

steps should be taken to obtain another secure carrier or means of transport. When evaluating 

common or contract carriers, in addition to evaluating warehouses or terminal security, the 

registrant might consider the following:

1) Physical security of the vehicles, e.g.:

a) Adequate vehicle and trailer locks subject to proper key control, and locking of vehicles 

at all times when unattended;

b) Vehicular alarm systems in use at all times when vehicles and trailers are unattended;

c) Fuel lock alarm devices;

d) Page alert alarm system carried by drivers when away from vehicles and trailer to alert 

them to unauthorized opening of doors, hood, etc.

2) Route variations to avoid patterns

3) Vehicles equipped with CB’s or other radios to communicate with local law enforcement 

agencies or the company warehouse or terminal in the event of an emergency or other duress 

condition.

4) Special code numbers or symbols painted on or otherwise affixed to the roof.

5) Driver screening, hiring and control programs.

6) Overall priority and security afforded controlled substances shipments.

7) Use of subcontracted carriers.
17

These security aspects and procedures are also applicable when delivering and picking up 

controlled substances using company-owned or leased vehicles operated by company employees. 

Although not required, precautions such as securely wrapping and sealing packages containing 

controlled substances and using unmarked or coded boxes or shipping containers are strongly 

recommended for guarding against in-transit losses.

Theft or Loss

Registrants must notify the appropriate DEA field office of theft or significant loss of any 

controlled substance. Furthermore, the supplier is responsible for reporting in-transit losses of 

controlled substances by a common or contract carrier. The registrant must then promptly 

complete and submit the DEA Form 106 regarding such losses or thefts. Thefts must be reported 

whether or not the controlled substances are subsequently recovered and/or the responsible 

parties identified and action taken against them.

Other Security Controls

Good Faith Inquiry. Before distributing a controlled substance to any person whom the 

registrant does not know to be registered to possess the controlled substance, the registrant must 

make a good faith inquiry either to DEA or to the appropriate state controlled substances 

licensing or registration agency, if any, to determine that the person or company may lawfully 

possess the controlled substances.

Suspicious Orders. The registrant must design and operate a system to disclose suspicious 

orders of controlled substances. The registrant must inform the appropriate DEA Field Office of 

suspicious orders immediately upon discovery. Such orders include, but are not limited to, orders 

of unusual size, orders deviating substantially from a normal pattern, and orders of unusual 

frequency.

Controlled Substance Samples. Complimentary samples of any controlled substance may not 

be distributed unless the following conditions are met: 

1. The distributor has a prior written request from the registrant which includes the customer’s 

name, address, registration number, and name and quantity of the specified controlled 

substance;

2. The controlled substance is to be used to meet the legitimate medical needs of patients; and

3. Reasonable quantities are requested.

Distributing Through Agents. When controlled substances are distributed by agents (i.e., 

detailmen), the registrant is responsible for providing adequate security to guard against theft or 

diversion while the controlled substances are being stored or handled by the agents.
18

Employees 

Screening. In order to fairly assess the likelihood of an employee committing a drug security 

breach, it is essential that non-practitioner registrants carefully screen individuals before hiring 

them. Of the utmost importance is a determination of convictions for crimes and unauthorized 

use of controlled substances. To this end, DEA recommends that the following two questions 

become a part of and employer’s comprehensive screening program:

1. Within the past five years, have you been convicted of a felony, or within the past two years, 

of any misdemeanor, or are you presently charged (formally) with committing a criminal 

offence? Do not include any traffic violations, juvenile offences on military convictions, 

except by general court-martial. If the answer is yes, furnish details of conviction, offense 

location, date, and sentence.

2. In the past three years, have you ever knowingly used any narcotics, amphetamines, or 

barbiturates, Other than those prescribed to you by a physician? If the answer is yes, furnish 

details.

DEA also recommends that an authorization, in writing, be completed by a person who is 

allowed to or is considered for work in a controlled substances area. This authorization should 

permit inquiries to be made of courts and law enforcement agencies concerning pending charges 

or convictions. Information on employees criminal records should then be used as follows:

1. Locally by name, date and place of birth, and other identifying information, inquire at local 

courts and law enforcement agencies for records of pending charges and convictions; and 

2. Nationally by the same identifying information make and inquiry at the appropriate DEA 

Field Office.

In addition, pre-employment screening should be by written application which covers such areas 

as credit checks, residences, educational background, military history, character, reputation, and 

past employment. All applications should strongly warn that any falsification will result in 

dismissal and that data will be verified.

Post-employment screening is also very important. Events in employees lives can change their 

reliability and integrity. Employees and supervisors should be encouraged to be on the lookout 

for troubled employees. Payroll and personnel offices should advise security officers of inquiries 

by creditors or attempted garnishment of wages. When employees are considered for promotion 

to positions of greater responsibility, additional comprehensive screening may be appropriate.

Responsibility to Report Drug Diversion. A necessary part of an overall employee security 

program is the reporting of employee drug theft or diversion in the workplace. It is also in the 

public interest. Employees who have knowledge of drug theft of diversion from their employer 

have an obligation to report such information to a responsible security official of the employer. 

Employers have a responsibility to treat such information as confidential and to take all 

reasonable steps to protect the confidentiality of the information and the identity of employees 
19

furnishing information. Failure to report drug theft or diversion information should be a critical 

factor in determining an employee’s continued employment in a drug security area.

Illicit Activities. Employees who posses, sell, use or divert controlled substances not only 

subject themselves to state or Federal prosecution for any illicit activity, but should also become 

the subject of independent action regarding their continued employment. Employers must assess 

the seriousness of the employee’s violation, the position of responsibility held by the employee, 

past record of employment, etc., in determining whether to take other action against the 

employee.
20

NARCOTIC TREATMENT PROGRAMS

Only a licensed practitioner employed at a Narcotic Treatment Program (NTP) or other 

authorized individual designated in writing may accept delivery of narcotic substances. Excluded 

from authorization to accept delivery are any persons currently or previously dependent on 

narcotics. At the time of delivery, the licensed practitioner or other authorized individual 

designated in writing must sign for the narcotics and place his or her specific title (if any) on the 

invoice. Copies of these signed invoices must be kept by the distributor.

Narcotics may only be dispensed or administered at an NTP directly to the patient by either: 

1. The licensed practitioner;

2. A registered nurse or a licensed practical nurse under the direction of the licensed 

practitioner;

3. A pharmacist under the direction of the licensed practitioner.

Persons enrolled at an NTP must wait in an area which is physically separated from the narcotic 

storage and dispensing area.

DEA may exercise discretion regarding the degree of security required in NTP’s based upon 

such factors as the location of a program, the number of patients, the number of physicians, staff 

members and security guards, etc. These factors will be taken into consideration when evaluating 

existing security or requiring new security at an NTP.
21

SECURITY REQUIREMENTS FOR PRACTITIONERS

Practitioners include physicians, dentists, veterinarians, researchers, hospitals, pharmacies, or 

other persons registered to do research, to dispense, or to use in teaching or chemical analysis a 

controlled substance in the course of professional practice.

Minimum security standards for practitioners are set forth in the regulations (Title 21 CFR 1300-

end) and are to be used in evaluating security. They may not necessarily be acceptable for 

providing effective controls and operating procedures to prevent diversion or theft of controlled 

substances. For example, a hospital that keeps large quantities of controlled substances on hand 

may need a safe or vault similar to the requirements for a distributor. The same reasoning also 

applies to other practitioners.

A practitioner’s overall security controls will be evaluated to determine if they meet the intent of 

the law and regulations to prevent theft or diversion.

Minimum Standards for Practitioners' Handling of Controlled Substances

Controlled substances must be stored in a securely locked cabinet of substantial construction. 

Pharmacies have the option of storing controlled substances as set forth above, or concealing 

them by dispersal throughout their stock of non-controlled substances.

Even though the Federal regulations do not specifically define locked cabinet construction, the 

intent of the law is that controlled substances must be adequately safeguarded. Therefore, 

depending on other security measures, a wooden cabinet may or may not be considered adequate. 

In an area with a high crime rate, a strong metal cabinet or safe may be required.

Some of the factors considered when evaluating a practitioner’s controlled substances security 

include:

1. The number of employees, customers and/or patients who have access to the controlled 

substances.

2. The location of the registrant (high or low crime area).

3. Use of an effective alarm system.

4. Quantity of controlled substances to be kept on hand.

5. Prior history of theft or diversion.

Again, an overall evaluation of the practitioner’s security will be made by DEA using the general 

and minimum security requirements as outlined in this manual to assure that the controlled 

substances are stored securely.
22

Other Security Controls for Practitioners

In order to minimize the opportunities for theft or diversion of controlled substances, 

practitioners have an obligation not only to provide effective physical security, but also to initiate 

additional procedures to reduce access by unauthorized persons as well as to provide alarm 

system where necessary.

Employee or Agent. A practitioner must not employ an agent or individual who has had his 

application for registration with DEA denied or revoked at any time, and who, as a result of his 

employment, will have access to controlled substances. 

Loss or Theft. A practitioner shall notify the nearest DEA Field Office of the theft or significant 

loss of any controlled substance upon discovery of such loss or theft. The practitioner shall 

promptly complete and submit DEA Form 106 regarding the theft or loss.

Blank prescriptions and DEA Order Forms. A practitioner should develop the practice of 

keeping blank prescription forms in locations which would preclude patients or casual visitors 

from stealing the forms for the purpose of falsification. Unused DEA Order Forms should also be 

kept in a secure location for the same reason.
23

Additional Security Measures

Although not specifically required by Federal law or regulation, the following additional security 

measures are recommended to enhance the overall security of non-practitioners as well as 

practitioners in some situations:

1. For large operations, designate a specific individual to act as a security manager or 

supervisor.

2. Routinely test alarm systems. At least annually, in the presence of the alarm contractor, 

conduct an on-site inspection and test of the entire alarm system to determine needed repairs 

and adjustments.

3. Ensure that all alarm systems have at least 24-hour battery or other standby power sources in 

the event of commercial power failure.

4. Use only balanced or biased magnetic contact switches and ensure motion detectors do not 

disclosed coverage by either by-pass or elimination of the walktest LEDs, if any.

5. In addition to balanced or biased contacts, install UL approved heat detectors on vault doors.

6. Ensure that all telephone junction boxes or rooms where alarm telephone circuits terminate 

are locked, tamper protected, and all labels or tags identifying these alarm circuits have been 

removed.

7. Do not permit vault, safe or premises openings other than at scheduled times. Instruct your 

alarm contractor that unscheduled or telephone request for openings other than by prior 

written request or other secure pre-arrangement should be treated as an alarm or duress 

condition.

8. Use UL approved locks and lock cylinders which are rated as Αpick≅ or burglary resistant.

9. Change all lock combinations at least annually or upon termination of any employee with 

knowledge of the combination(s), regardless if the reason for the termination.

10. Use two supervisors to open all premises which are alarmed. One individual should remain a 

safe distance away from the premise entrance while the other enters and searches to be 

certain everything is alright, then signal by pre-arrangement to the other. 

11. Meet periodically with local and state law enforcement officials to discuss alarm response, 

criminal activity statistics, patrol frequency, and other pertinent matters.

12. Develop robbery, hostage and kidnapping (extortion) contingency plans which are 

disseminated and made known to all employees from management on down.
24

13. Enclose shipping/receiving areas in steel or chain link fencing, install day gates on loading 

platform doors, and adequately harden and secure other doors and openings to isolate and 

restrict access to the warehouse or manufacturing areas by drivers and other unauthorized 

individuals.

14. Require that all shipping/receiving dock day gates are kept closed at all times when docks 

are not in use.

15. Install local alarms or hard-wired day annunciation contact switches on all fire exits and 

other perimeter doors not authorized for employee or visitor use.

16. If utilizing company-owned or leased vehicles for the pickup and delivery of controlled 

substances, do not mark them with the company name or other identification which would 

indicate the nature of your business.

17. Isolate and secure office entry foyers or reception areas to prevent unauthorized entry. Entry 

from these areas should be remotely controlled by electronic locks or other automatic access 

devices after positive identification.

18. Locate receptionists behind bullet resistant barriers which are equipped with a package 

receiver and telephone or intercom system for communications.

19. Leave application forms for employment in the secured entry foyers or reception areas unless 

a secure pass through mechanism has been installed.

20. Secure doors from office areas to warehouse, research, and/or manufacturing areas with 

key/combination locks, machine-aided manual access devices, or other suitable mechanisms.

21. For larger operations, use a photo badge identification system for all employees and require 

other visitors such as tradesmen, contractors, vendors, etc. to wear special identification 

badges at all times when on the premises.

22. Install closed circuit TV cameras to monitor vaults, shipping/receiving areas, manufacturing 

area, cages, etc. These need not be continuously monitored if video recording systems are 

employed.

23. Issue and require the wearing of pocketless coverall type uniforms in the manufacturing areas 

vulnerable to pilferage of dosage form pharmaceuticals. The uniforms can be color coded to 

signify specific manufacturing areas.
25

Drug Enforcement Administration Field Offices

with Assigned Diversion Investigators Personnel

Location Jurisdiction

Albuquerque District Office

Suite 100

4775 Indian School Road, N.E. 

Albuquerque, New Mexico 87110

(505) 262-6283

New Mexico

Atlanta Division

75 Spring Street, SW,

Room 740

Atlanta, Georgia 30303

(404) 331-7328

Georgia

South Carolina

Baltimore District Office

200 St. Paul Plaza, Suite 2222

Baltimore, Maryland 21202

(410) 962-4800

Maryland

Boston Division

50 Staniford Street

Suite 200

Boston, Massachusetts 02114

(617) 565-2800

Maine

Massachusetts

New Hampshire

Rhode Island

Vermont

Buffalo Resident Office

28 Church Street

Suite 300

Buffalo, New York 14202

(716) 846-4421

Western and Central

New York

Camden Resident Office

1000 Crawford Place

Suite 200

Mt. Laurel, New Jersey 08054

(609) 757-5006

Southern New Jersey

Charleston Resident Office

2 Monogalia Street

Suite 202

Charleston, West Virginia 25302

(304) 347-5209

West Virginia

Chicago Division

500 Dirksen Federal Bldg.

219 South Dearborn Street

Suite 500

Chicago, Illinois 60604

(312) 353-7875

Central and Northern Illinois

Cleveland Division

Courthouse Square

310 Lakeside Avenue, Suite 395

Cleveland, Ohio 44113

(216) 522-3705

Northern Ohio

Columbus Resident Office

78 East Chestnut St.

Room 409

Central and Southern Ohio
26

Columbus, Ohio 43215

(614) 469-2595

Dallas Division

1880 Regal Row

Dallas, Texas 75235

(214) 767-7250

Northern Texas

Denver Division

115 Inverness Drive East

Englewood, Colorado 80112

(303) 784-6381

Colorado

Wyoming

Des Moines Resident Office

Room 937, Federal Building

210 Walnut Street

Des Moines, Iowa 50309

(515) 284-4700

Iowa

Detroit Division

357 Federal Building

231 W. Lafayette 

Detroit Michigan 48226

(313) 226-7290

Michigan

Ft. Lauderdale Resident Office

1475 W. Cypress Creek Blvd.

Suite 301

Ft. Lauderdale, Florida 33309

(305) 527-7094

Southern Florida

Fresno Resident Office

1260 M Street, Room 200

Fresno, California 93721

(209) 487-5402

Central California

Greensboro Resident Office

2300 W. Meadowveiw Road

Suite 218

Greensboro, North Carolina 27407

(919) 333-5052

North Carolina

Harrisburg Resident Office

P.O. Box 557

Harrisburg, Pennsylvania 17108-0557

(717) 782-2270

Central Pennsylvania

Hartford Resident Office

450 Main Street

Room 628

Hartford, Connecticut 06103

(203) 240-3230

Connecticut

Honolulu Resident Office

Room 3129

300 Ala Moana Boulevard

P.O. Box 50163

Honolulu, Hawaii 96850

(808) 541-1930

Hawaii

Trust Territories

Houston Division

33 West Loop North 

Suite 300

Houston, Texas 77024-7707

(713) 681-1771

Eastern and Southern Texas

Indianapolis District Office Indiana
27

575 N. Pennsylvania

Room 290

Indianapolis, Indiana 46204

(317) 226-7977

Kansas City Resident Office

8600 Farley, Suite 200

Overland Park, Kansas 66212

(913) 236-3176

Kansas

Western Missouri

Little Rock Resident Office

10825 Financial Parkway

Suite 317

Little Rock, Arkansas 72211-3557

(501) 378-5981

Arkansas

Long Island District Office

1 Huntington Quadrangle

Suite IC-02

Melville, New York 11747

(516) 420-4532

Long Island, New York

Los Angeles Division

World Trade Center

Edward Roybal Federal Building

255 East Temple Street, 20th Floor

Los Angeles, California 90012

(213) 894-4016

South Central California

Nevada

Louisville Resident Office

1006 Federal Building

600 Martin Luther King, Jr. Place

Louisville, Kentucky 40202

(502) 582-5908

Kentucky

Miami Division

8400 N.W. 53rd St.

 Miami, Florida 33166

(305) 591-4980

Southern Florida and

Eastern Coast of Florida

Milwaukee Resident Office

100 Water Street, Suite 1010

Milwaukee, Wisconsin 53202

(414) 297-3395

Wisconsin

Minneapolis Resident Office

402 Federal Building

110 S.4th Street

Minneapolis, Minnesota 55401

(612) 348-1729

Minnesota

North Dakota

Mobile Resident Office

1110 Mountlimar

Suite 270

Mobile, Alabama 36609

(205) 441-5831

Alabama

Nashville Resident Office

801 Broadway, Room A929

Nashville, Tennessee 37203

(615) 736-5988

Tennessee

Newark Division

Federal Office Building

970 Broad Street

Newark, New Jersey 07102

Central and Northern

New Jersey
28

(201) 645-3482

New Orleans Division

3838 N. Causeway Blvd., Suite 1800

Three Lake Center

New Orleans, Louisiana 70002

(504) 585-5665

Louisiana

Mississippi

New York Division

99 Tenth Avenue 

New York, New York 10011

(212) 337-1575

Northern and Southern

New York

Oklahoma City Residents Office

Federal Building 

200 N.W. Fifth Street

Suite 960

Oklahoma City, Oklahoma 73102

(405) 231-4141

Oklahoma

Omaha Resident Office

106 South 15th Street, Room 1003

Omaha, Nebraska 68102

(402) 221-4222

Nebraska

South Dakota

Philadelphia Division

William J. Green Federal Building

600 Arch Street

Room 10224

Philadelphia, Pennsylvania 19106

(215) 597-9540

Delaware

Eastern Pennsylvania

Phoenix Division

3010 N. 2nd Street

Suite 301

Phoenix, Arizona 85012

(602) 640-5700

Arizona

Pittsburgh Resident Office

Federal Building

1000 Liberty Avenue

Room 2306

Pittsburgh, Pennsylvania 15222

(412) 644-3390

Western Pennsylvania

Portland Resident Office

1220 S.W. 3rd Avenue

Room 1525

Portland, Oregon 97204

(503) 326-3371

Oregon

Richmond Resident Office

8600 Staples Mill Road

Suite B

Richmond, Virginia 23240

(804) 771-8163

Central, Southeastern and

Southwestern Virginia

Sacramento Resident Office 

1860 Howe Avenue

Suite 250

Sacramento, California 95825

(916) 978-4425

North Central and

Northeastern California

Salt Lake City Resident Office

American Towers III

47 West 200 South, Room 401

Utah
29

Salt Lake City, Utah 84101

(801) 524-4156

San Antonio District Office

10127 Morocco

Suite 200

San Antonio, Texas 78216

(512) 525-2900

Central and Western Texas

San Diego Division

402 W. 35th Street

National City, California 90250

(619)585-4200

Southern California

St. Louis Division

United Missouri Bank Building

7911 Forsythe Boulevard 

Suite 500

St. Louis, Missouri 63105

(314) 425-3241

Eastern Missouri

Southern Illinois

San Francisco Division

450 Golden Gate Avenue

P.O. Box 36035

San Francisco, California 94102

(415) 556-3325

Central and Northern Coast

California

San Juan District Office

Casa Lee Building

2432 Loiza Street

Santurce, Puerto Rico 00913

(809) 253-4234

Puerto Rico

Virgin Islands

Seattle Division

220 West Mercer Street

Suite 104

Seattle, Washington 98119

(206) 442-5443

Washington State

Montana

Alaska

Idaho

Tampa Resident Office

5426 Bay Center Drive

Tampa, Florida 33609

(813) 228-2486

Central, Northcentral and

Northwestern Florida

Washington, D.C Division

400 Sixth Street, S.W.

Room 2558

Washington, DC 20024

(202) 401-7834

District of Columbia

Northern Virginia

Southern Maryland