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Guidance Medication Guides Distribution Requirements and Inclusion in Risk Evaluation and Mitigation Strategies (REMS) - PDF
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1 Guidance s Distribution Requirements and Inclusion in Risk Evaluation and Mitigation Strategies (REMS) U.S. Department of Health and Human Services Food and Drug Administration Center for Drug Evaluation and Research (CDER) Center for Biologics Evaluation and Research (CBER) November 2011 Drug Safety
2 Guidance s Distribution Requirements and Inclusion in Risk Evaluation and Mitigation Strategies (REMS) Additional copies are available from: Office of Communications Division of Drug Information Center for Drug Evaluation and Research Food and Drug Administration New Hampshire Ave. Silver Spring, MD Phone: ; Fax: and/or Office of Communication, Outreach and Development, HFM-40 Center for Biologics Evaluation and Research Food and Drug Administration 1401 Rockville Pike, Rockville, MD (Tel) or U.S. Department of Health and Human Services Food and Drug Administration Center for Drug Evaluation and Research (CDER) Center for Biologics Evaluation and Research (CBER) November 2011 Drug Safety
3 TABLE OF CONTENTS I. INTRODUCTION... 1 II. BACKGROUND... 2 A. The Regulations...2 B. FDAAA Requirements for s as Part of REMS...3 III. DISCUSSION... 5 A. Distribution of s in Certain Settings Discussion Distribution Requirements Under Part B. s as Part of REMS Policy Procedure for Requesting Removal of s from REMS...8
4 Guidance 1 s Distribution Requirements and Inclusion in Risk Evaluation and Mitigation Strategies (REMS) This guidance represents the Food and Drug Administration s (FDA s) current thinking on this topic. It does not create or confer any rights for or on any person and does not operate to bind FDA or the public. You can use an alternative approach if the approach satisfies the requirements of the applicable statutes and regulations. If you want to discuss an alternative approach, contact the FDA staff responsible for implementing this guidance. If you cannot identify the appropriate FDA staff, call the appropriate number listed on the title page of this guidance. I. INTRODUCTION 2 This guidance provides information for industry, healthcare providers, and authorized dispensers of prescription drug products. The guidance addresses two topics pertaining to s for drug and biological products: 3 When FDA intends to exercise enforcement discretion regarding when a must be provided with a drug or biological product that is dispensed to a healthcare professional for administration to a patient 4 instead of being dispensed directly to the patient for self-administration or to the patient s caregiver for administration to the patient. When a will be required as part of a risk evaluation and mitigation strategy (REMS). 1 This guidance has been prepared by the Offices of Regulatory Policy, Medical Policy, Surveillance and Epidemiology, New Drugs, Compliance, and Generic Drugs in the Center for Drug Evaluation and Research (CDER) and the Center for Biologics Evaluation and Research (CBER) at the Food and Drug Administration. 2 This guidance does not apply to the distribution of s to patients participating in clinical trials conducted under an investigational new drug application (IND) because the specific information necessary for safe use of the drug, which is comparable to that contained in a, is required to be made available to study subjects in the informed consent forms and the investigators brochure. See 21 CFR and 50.25; 21 CFR (a)(5) and When used in this guidance, the term drug includes biological drug products. 4 For purposes of this guidance, the terms administration or administer to a patient include both (1) when a healthcare professional administers the drug to the patient (e.g., by injection or intravenously) and (2) when the healthcare professional provides the drug to the patient to self-administer while under the healthcare professional s direct supervision (e.g., the healthcare professional hands the patient or the patient s caregiver the drug for the patient to take before leaving the healthcare professional s office). 1
5 FDA s guidance documents, including this guidance, do not establish legally enforceable responsibilities. Instead, guidances describe the Agency s current thinking on a topic and should be viewed only as recommendations, unless specific regulatory or statutory requirements are cited. The use of the word should in Agency guidances means that something is suggested or recommended, but not required. II. BACKGROUND A. The Regulations In 1998, FDA issued final regulations establishing requirements for the distribution of patient labeling for certain prescription drug and biological products used primarily on an outpatient basis without direct supervision by a healthcare professional (63 FR 66378, December 1, 1998). These regulations, codified in 21 CFR part 208, apply to certain drug and biological products that FDA determines pose a serious and significant public health concern requiring the distribution of FDA-approved patient medication information that is necessary to patients safe and effective use of the drug products (a ). All s are subject to the standard in and the requirements of part 208. Section 208.1(a) states that s apply primarily to human prescription drug products used on an outpatient basis without direct supervision by a healthcare professional and are applicable to both new and refill prescriptions. Section 208.1(c) authorizes FDA to require a if FDA determines one or more of the following circumstances exist: (1) The drug product is one for which patient labeling could help prevent serious adverse effects. (2) The drug product is one that has serious risk(s) (relative to benefits) of which patients should be made aware because information concerning the risks could affect patients decision to use, or continue to use, the product. (3) The drug product is important to health and patient adherence to directions for use is crucial to the drug s effectiveness. Part 208 specifies the content and format of s and manufacturer requirements to provide s for distribution. Manufacturers of drug products for which a is required must: obtain FDA approval of the before the is provided, and ensure that s are provided in sufficient numbers, or provide the means to produce s in sufficient numbers, to distributors, packers, 2
6 and authorized dispensers to permit the authorized dispenser to provide a to each patient receiving a prescription for the drug product. 5 Part 208 also specifies the requirements for distribution of s: Distributors and packers who receive the s, or the means to produce s, must provide the s or the means to provide them to authorized dispensers. 6 Each authorized dispenser of a prescription drug product for which a is required must provide the directly to each patient or each patient s agent when the product is dispensed, unless an exemption applies. 7 Section 208.3(a) and (b) contain the following definitions: Authorized dispenser is an individual licensed, registered, or otherwise permitted by the jurisdiction in which the individual practices to provide drug products on prescription in the course of professional practice. Dispense to patients means the act of delivering a prescription drug to a patient or an agent of the patient either: (1) By a licensed practitioner or an agent of a licensed practitioner, either directly or indirectly, for self-administration by the patient, or the patient s agent, or outside the licensed practitioner s direct supervision; or (2) By an authorized dispenser or an agent of an authorized dispenser under a lawful prescription of a licensed practitioner. B. FDAAA Requirements for s as Part of REMS The Food and Drug Administration Amendments Act of 2007 (FDAAA) 8 created new section of the Federal Food, Drug, and Cosmetic Act (FD&C Act) (21 U.S.C ), which authorizes FDA to require a risk evaluation and mitigation strategy (REMS) when necessary to ensure that the benefits of a drug outweigh the risks. Under section 505-1(e), FDA may require that a REMS for a drug include one or more of the elements described in the subsection, 5 21 CFR (a) and (b) CFR (c) CFR (e). 8 Public Law , September 27,
7 including when the criteria in 21 CFR part 208 are met, the requirement for an applicant 9 to develop a for distribution to each patient when the drug is dispensed. Under part 208, s may be safety-related, addressing serious risk(s) (relative to benefits) of which patients should be made aware, and/or efficacy-related, when patient adherence to directions for use is crucial to the drug s effectiveness. 10 Since the enactment of FDAAA, FDA has considered any new (or safety-related changes to an existing ) to be part of a REMS. However, the Agency has the authority to determine, based on the risks of a drug and public health concern, whether a should be required as part of a REMS when the standard in part 208 is met, and may decide the should be required as labeling but not part of a REMS if FDA determines that a REMS is not necessary to ensure the benefits of the drug outweigh its risks. Between March 25, 2008, when the REMS provisions of FDAAA took effect and January 1, 2011, FDA has approved over 150 s for products approved under new drug applications (NDAs) and biologic license applications (BLAs) as part of a REMS. One hundred and eight of these REMS included only a and a timetable for submission of assessments of the REMS. In some cases, s have been approved as part of REMS for drugs that are often provided in inpatient settings or in outpatient settings where the drug is dispensed to a healthcare professional who then administers the drug to the patient. Questions have arisen concerning FDA s policy on whether the must be provided every time the drug is dispensed because part 208 states that the regulations are intended to apply primarily in the outpatient setting. 11 FDA can require the development of or safety-related changes to a and can require these to be completed quickly, whether or not a is part of a REMS. s are part of labeling (21 CFR (c)) and are subject to the safety labeling change provisions of section 505(o)(4) of the FD&C Act, added by FDAAA. Under these provisions, FDA can require the development of a (or safety-related changes to an existing ) based on new safety information of which FDA becomes aware after approval of the product. Section 505(o)(4) includes tight timeframes for applicant submission of a supplement containing the labeling changes or a statement detailing the reasons why such a change is not warranted, as well as authority for FDA to order the labeling changes if agreement is not reached within the statutorily specified timeframes. 9 The regulations refer to manufacturers. For purposes of this guidance discussing s in the context of the FD&C Act as amended by the FDAAA, we use the term applicant to include holder of an approved covered application in section of the FD&C Act and responsible person in section 505(o)(4) of the FD&C Act (21 U.S.C. 355(o)(4)) CFR 208.1(b) and (c) CFR 208.1(a) 4
8 III. DISCUSSION AND POLICY A. Distribution of s in Certain Settings 1. Discussion Questions have arisen concerning the requirements for providing a when a drug is not dispensed directly to a patient for self-administration or to the patient s caregiver, as anticipated in 208.1(a), but rather is dispensed or distributed to a healthcare professional who then administers the drug to the patient. For example, in an inpatient setting such as a hospital or nursing home, drugs are dispensed by the hospital pharmacist and then administered by hospital staff to patients. Similarly, in an outpatient setting such as a clinic or infusion center, drugs are dispensed or distributed to a healthcare professional who then administers the drug to the patient, sometimes without the involvement of a dispensing pharmacy or pharmacist. In some cases, these drugs are administered to a patient several times a day or several times a week. One goal of this guidance is to articulate the circumstances under which FDA intends to exercise enforcement discretion regarding the requirement to provide s in certain settings, such as when a drug is dispensed to a healthcare professional for administration to a patient in an inpatient setting. We believe that this exercise of enforcement discretion will allow patients to receive important information about the drugs they will be taking without burdening the healthcare system to provide repetitive information when no material changes have been made. 2. Distribution Requirements Under Part 208 s must be provided according to the requirements in 21 CFR part 208. See section II.A. a. Circumstances under which FDA intends to exercise enforcement discretion regarding distribution A need not be provided (i.e., FDA intends to exercise enforcement discretion concerning distribution of a to a patient) when a drug is dispensed under the following circumstances: When the drug is dispensed to a healthcare professional for administration to a patient in an inpatient setting, except as provided in b. below. When the drug is dispensed to a healthcare professional for administration to a patient in an outpatient setting, such as in a clinic or dialysis or infusion center, except as provided in b. below. In these settings, the drug will be administered to a patient by a healthcare professional who should provide the patient instructions on appropriate use of the drug, including what potential side effects may occur or follow-up that may be required as appropriate, and answer any questions the patient may have. 5
9 b. Circumstances under which FDA will not exercise enforcement discretion and a must be provided to a patient in inpatient and outpatient settings A must be provided to the patient or the patient s agent (i.e., FDA does not intend to exercise enforcement discretion) in the following situations: When the patient or the patient s agent requests a. When a drug is dispensed in an outpatient setting (e.g., retail pharmacy, hospital ambulatory care pharmacy) and the product will then be used by the patient without direct supervision by a healthcare professional. The first time a drug is dispensed to a healthcare professional for administration to a patient in an outpatient setting, such as in a clinic or dialysis or infusion center. The first time a drug is dispensed in an outpatient setting of any kind, after a is materially changed (e.g., after addition of a new indication, new safety information). FDA plans to specify in the letter approving a revised when a change is considered to be a material change, and applicants will be directed to notify healthcare professionals that a material change was made (i.e., a new indication, new safety information). When a drug is subject to a REMS that includes specific requirements for reviewing or providing a as part of an element to assure safe use (possibly in conjunction with distribution), the must be provided in accordance with the terms of the REMS, as when healthcare providers are required to review the with patients before patients are enrolled in a REMS program. The must be provided in outpatient settings, even when the drug is dispensed to a healthcare professional for administration to the patient, the first time the drug is dispensed, and if the is materially changed. In these instances, we would expect the to assist the healthcare professional in communicating important information about the drug to the patient. FDA intends to exercise enforcement discretion with regard to providing s in certain circumstances as described above. The following table reflects those circumstances, in accordance with the above-described policy. 6
10 Table 1: Enforcement Discretion Policy Setting Inpatient Outpatient when drug dispensed to healthcare professional for administration to patient (e.g., clinic, infusion center, emergency department, outpatient surgery) Outpatient when drug dispensed directly to patient or caregiver (e.g., retail pharmacy, hospital ambulatory pharmacy, patient samples) Patient or Patient s Agent Requests Must provide Must provide Must provide Provided Each Time Drug Dispensed FDA intends to exercise enforcement discretion; need not be provided FDA intends to exercise enforcement discretion; need not be provided Provided At Time of First Dispensing FDA intends to exercise enforcement discretion; need not be provided Provided When Materially Changed FDA intends to exercise enforcement discretion; need not be provided Drug is subject to an ETASU REMS that includes specific requirements for providing and reviewing a as specified in REMS as specified in REMS as specified in REMS B. s as Part of REMS 1. Policy While all s must meet the standard and requirements in part 208, not every newly required will be an element of a REMS. A REMS is a strategy for managing the risks associated with a drug and a can be one part of that strategy. As the risks associated with the use of a drug increase, the tools needed to ensure safe use of a drug also increase. Depending on the risks involved, FDA may approve a 7
11 under part 208 without requiring a REMS when that alone is adequate to address the serious and significant public health concern and meets the standard in In other cases, FDA may determine that a and other elements of a REMS, such as elements to assure safe use, are necessary to ensure that the benefits of a drug outweigh the risks. In most cases, FDA expects to include a as part of a REMS only when the REMS includes elements to assure safe use. However, FDA will include a in a REMS that does not include elements to ensure safe use if we determine that having the without a REMS will not be sufficient to ensure that the benefits of the drug outweigh the risks. s that are required as part of REMS under section are subject to the assessment and modification provisions of section 505-1(g) and (h) of the FD&C Act. 2. Procedure for Requesting Removal of s from REMS Applicants who currently have a REMS that includes only a and a timetable for submission of assessments may submit a prior approval supplement that proposes a REMS modification to eliminate the REMS if they do not believe that the REMS is necessary to ensure that the benefits of the drug outweigh the risks. Applicants with a REMS that includes a, a communication plan, and a timetable for assessment also may submit a prior approval supplement that proposes a REMS modification to remove the from the REMS, if they do not believe that a that is a part of the REMS is necessary to ensure that the benefits of the drug outweigh the risks. FDA will review any such supplements and determine whether the is necessary to ensure that the benefits of the drug outweigh the risks of the drug, as a tool of a REMS under section The proposed REMS modification must be accompanied by a REMS assessment. If the REMS has been assessed in the past 18 months, the assessment may consist of a statement to that effect. If the REMS has not been assessed in the past 18 months, including a REMS for which the first assessment has not been submitted, the assessment may consist of an update on the status of any postapproval study or clinical trial required under section 505(o) or otherwise undertaken by the responsible person to investigate a safety issue, including the information required under section 505-1(g)(3)(B) and (C) of the FD&C Act. If the REMS is not eliminated (e.g., the is removed from the REMS but the approved modified REMS still includes a communication plan and timetable for submission of assessments), this assessment to support the REMS modification will not replace any assessments required by the timetable for submission of assessments in the approved REMS. 8
12 When the requirement for a REMS that includes only a for a reference listed drug has been removed, 12 generic drug applicants may submit a changes being effected (CBE) supplement that proposes a REMS modification to eliminate the REMS (21 CFR (c)(6)). Even if the is removed from the REMS or the requirement for the REMS is removed, the will continue to be part of the approved labeling in accordance with part 208, unless the FDA approves a supplement removing the from the approved labeling. 12 Information about approved REMS is available at FDA s Web page Postmarket Drug Safety Information for Patients and Providers at 9